2024 - 2027
Terrirtorial Emergency
Operations Plan
The Virgin Islands 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Basic Plan 
i 
December 2024 
Promulgation Document/Signature Page 
Transmitted herewith is the Virgin Islands Territorial Emergency Operations Plan (TEOP) for the 
United States Virgin Islands, which supersedes all previous formats and revisions. In 2024, the 
Virgin Islands Territorial Emergency Management Agency (VITEMA) initiated comprehensive 
updates to the TEOP to align with the 2022 Emergency Management Accreditation Program 
(EMAP) Standards and Comprehensive Planning Guide (CPG) 101 requirements. The enhanced 
plan incorporates updates to the FEMA's Community Lifelines framework, expanded Essential 
Elements of Information (EEI), and streamlines supporting plans, Standard Operating Procedures 
(SOPs), and annexes. 
The updated version includes this Base Plan with updates to the Hazard Risk Identification 
Assessments. These updates strengthen coordination among Territorial agencies and 
organizations while enhancing continuity of government operations, resource management 
procedures, and disaster communications protocols. The plan also establishes more robust 
frameworks for public-private coordination through the Business Emergency Operations Center 
(BEOC). All Coordinating Agencies with roles and responsibilities participated in the revision of 
this document. 
The purpose of the TEOP is to establish the overall framework within which all entities of Territorial 
government, non-governmental organizations, private sector, and our citizens will operate in an 
integrated and coordinated fashion before, during and after a disaster." 
This plan is in accordance with existing federal and territorial statutes and understandings of the 
various departments involved. It will be reviewed and recertified periodically by the VITEMA 
Director. All recipients are requested to advise VITEMA of any and all changes which might result 
in its improvement or increase in its usefulness. 
 
 
 
 
 
 
 
 
 
 
 
 
 
• 
U.S. Virgin Islands Territorial Emergency Operations Plan 
--___,;,,,,____-------=--------=--------------1 
By virtue of the authority vested in me, by the United States Virgin Islands, I hereby promulgate 
and issue the Territorial Emergency Operations Plan as the official guidance of all concerned. 
Daryl D. Ja 
en 
Date 
Virgin Islands Territorial mer ency Management Agency 
Basic Plan 
Ill 
December 2024 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Basic Plan 
iv 
December 2024 
Record of Changes 
Date of 
Change(s) 
Section 
Page
(s) 
Description of 
Changes(s) 
Feedback 
Provide By: 
Change(s) 
made By: 
9/30/2021 
All Sections 
All 
A new TEOP was 
developed based on 
emergency support 
functions and hazard-
specific annexes 
All Coordinating 
Agencies 
VITEMA 
Contractor 
12/30/2022 
Annex A 
Updating hazards to reflect 
those in the 2019 HMP 
EMAP Internal 
Team  
VITEMA Planning 
& Preparedness 
Division  
01/10/2023 
ORGANIZATION 
AND 
ASSIGNMENT OF 
RESPONSIBILITIES 
30 
Private Sector Coordination  
VITEMA Planning 
& Preparedness 
Division  
01/25/2024 
At-Risk Annex  
Addition of At Risk Annex 
VITEMA Planning 
and Preparedness 
Division  
12/30/2024 
All Sections  
Updated information regarding 
HIRA, and ensured all parts are 
compliant with the 2022 EMAP 
Standard.  
Updated all references to 2024 
standards and requirements  
Integrated FEMA's Community 
Lifelines framework throughout  
Enhanced documentation 
requirements across all sections  
Updated agency names and 
responsibilities throughout  
Added cultural competency 
considerations in multiple sections  
Strengthened coordination 
mechanisms between ESFs.  
VITEMA Planning 
and Preparedness 
Division  
12/30/2024 
Introduction 
1 
Updated reference to 2024 
comprehensive updates to align 
with 2022 EMAP Standards and 
CPG 101 requirements  
Added information about 
incorporation of FEMA's 
Community Lifelines framework  
Added reference to expanded 
Essential Elements of Information 
VITEMA Planning 
and Preparedness 
Division 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Basic Plan 
v 
December 2024 
(EEI)  
New content about streamlined 
supporting plans, SOPs and 
annexes 
12/30/2024 
Situation and 
Assumptions 
3-7 
Updated population statistics from 
"105,870" to "87,146" based on 
2020 Census  
Added new section about At-Risk 
Populations Communications 
Procedures Annex (2024)  
Added new paragraph about the 
Business Emergency Operations 
Center (BEOC) as primary public-
private sector interface 
VITEMA Planning 
and Preparedness 
Division 
12/30/2024 
Concept of 
Operations 
7-15 
Added new section about 
comprehensive Training Matrix 
system  
Added details about KPI reports 
and qualification standards  
New content about BEOC liaison 
roles and responsibilities  
Updated lifelines table with more 
detailed component descriptions 
VITEMA Planning 
and Preparedness 
Division 
12/30/2024 
Information 
Collection and 
Dissemination 
15-20 Added new regular testing 
schedule requirements  
Added specifications for alternate 
systems documentation  
Enhanced documentation 
requirements for communications 
testing 
VITEMA Planning 
and Preparedness 
Division 
12/30/2024 
Organization and 
Assignment of 
Responsibilities 
 
20-31 Added BEOC coordination 
responsibilities  
Updated ESF assignments and 
coordinating agencies  
Added private sector coordination 
details through BEOC 
VITEMA Planning 
and Preparedness 
Division 
12/30/2024 
Administration, 
Finance and 
Logistics 
32-37 Added new Program Budget and 
Financial Administration section  
Enhanced Resource Management 
Systems section  
Added Exercise Program 
Enhancements and documentation 
standards  
VITEMA Planning 
and Preparedness 
Division 
U.S. Virgin Islands Territorial Emergency Operations Plan 
Basic Plan 
vi 
December 2024 
New Training Records System 
requirements 
12/30/2024 
Appendices 
Updated Appendix A with new 
hazard analysis data 
Added new At-Risk Populations 
Communications Procedures in 
Appendix F 
Appendix C (pg C-1 to C-4) - 
Updated training requirements in 
task assignments 
Enhanced the Essential Elements of 
Information in Appendix E 
ESF Operations Guide (new section 
added) - Added comprehensive 
training standards 
Updated succession of authority 
listings in Appendix D 
VITEMA Planning 
and Preparedness 
Division 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Basic Plan 
vii 
December 2024 
Record of Distribution 
The TEOP is digitally published at the Virgin Islands Territorial Emergency Management Agency 
Website: vitema.vi.gov. 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
viii 
December 2024 
 
Table of Contents 
Promulgation Document/Signature Page ............................................................................... i 
Plan Approval and Review Acknowledgment ......................................................................... i 
Record of Changes .................................................................................................................... iv 
Record of Distribution ............................................................................................................ vii 
List of Tables .............................................................................................................................. x 
List of Annexes ........................................................................................................................... x 
TERRITORIAL EMERGENCY OPERATIONS PLAN BASE PLAN ................................................ 1 
I. 
INTRODUCTION ............................................................................................................................................ 1 
II. 
PURPOSE .......................................................................................................................................................... 1 
III. 
SCOPE ........................................................................................................................................................... 2 
IV. 
PLAN STRUCTURE .................................................................................................................................... 3 
V. 
SITUATION AND ASSUMPTIONS ............................................................................................................ 3 
VI. 
CONCEPT OF OPERATIONS .................................................................................................................. 7 
VII. 
Information Collection and Dissemination .................................................................................. 18 
VIII. 
Organization and Assignment of Responsibilities .................................................................... 24 
IX. 
CONTINUITY OF GOVERNMENT ..................................................................................................... 35 
X. 
Administration, Finance, and Logistics .............................................................................................. 37 
XI. 
ANNEX DEVELOPMENT AND MAINTENANCE ........................................................................... 45 
XII. 
AUTHORITIES AND REFERENCES .................................................................................................... 48 
Appendix A to the Base Plan Hazard and Threat Analysis Summary .............................. A-1 
I. 
Past Declared Disasters ......................................................................................................................... A-1 
II. 
Threats and Hazards of Concern ........................................................................................................ A-3 
III. 
Hazard and Threat AnaLysis ............................................................................................................ A-3 
Appendix B to the Base Plan Incident Classification Procedures ..................................... B-1 
I. 
GENERAL ..................................................................................................................................................... B-1 
II. 
DEFINITIONS .............................................................................................................................................. B-1 
III. 
procedures ............................................................................................................................................. B_2 
Appendix C to the Base Plan Primary and Support Responsibilities Chart and Task 
Assignments by Function ...................................................................................................... C-1 
I. 
COORDINATING AND SUPPORT RESPONSIBILITIES CHART .................................................. C-1 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
ix 
December 2024 
II. 
TASK ASSIGNMENTS BY EMERGENCY SUPPORT FUNCTION ................................................. C-4 
Appendix D to the Base Plan Succession of Authority and Pre-Delegation ................... D-1 
Appendix E to the Base Plan Response Essential Elements of Information ..................... E-1 
Comprehensive Emergency Support Function (ESF) Operations Guide .................................... E-71 
Purpose and Scope ............................................................................................................... E-71 
General Requirements for All ESFs .......................................................................................... 2 
XIV. 
ESF-Specific Guidance ............................................................................................................................ 3 
Appendix F to the Base Plan At-Risk Populations Communications Procedures Checklist
 ................................................................................................................................................... 32 
Appendix G to the Base Plan Acronyms and Terms ............................................................. 36 
 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan 
Base Plan 
x 
December 2024 
List of Tables 
Table 1. ESF and Hazard-Specific Annex Coordinating Agencies .............................................................. 10
Table 2: Lifelines and Descriptions ........................................................................................................................ 13
Table A-1: USVI Declared Disasters ..................................................................................................................... A-1
Table A-2: USVI Hazard and Threat Analysis Summary ............................................................................... A-5
Table A-3 Earthquake Magnitude / Intensity Comparison: ........................................................................ A-7
Table A-4: Earthquake Magnitude / Intensity Comparison: ..................................................................... A-10
Table C-1. Emergency Support Functions, Responsibilities, and Assignments ................................... C-2
Table C-2: Emergency Support Function Overview ....................................................................................... C-4
Table D-1: Succession of Authority and Pre-Delegation ............................................................................. D-1
Table E-1: Response Essential Elements of Information .............................................................................. D-2
Table G-1: Acronyms and Terms ........................................................................................................................ F-36
List of Annexes 
ESF 1 - Transportation  
ESF 2 - Communications   
ESF 3 - Public Works and Engineering   
ESF 4 - Firefighting   
ESF 5 - Emergency Management   
ESF 6 - Mass Care, Emergency Assistance, Housing, and Human Services 
ESF 7 - Logistics Management and Resource Support   
ESF 8 - Public Health and Medical Services   
ESF 9 - Search and Rescue  
ESF 10 - Oil and Hazardous Materials Response  
ESF 11 - Agriculture and Natural Resources   
ESF 12 - Energy  
ESF 13 - Public Safety and Security   
ESF 14 - Long-Term Community Recovery   
ESF 15 - External Affairs  
Active Threat/Active Shooter  
Cyber Attack  
Hurricane/Tropical Storm and Flooding  
Earthquakes  
Terrorism 
Tsunamis  
Pandemic-Human  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
1 
December 2024 
TERRITORIAL EMERGENCY OPERATIONS PLAN 
BASE PLAN 
 
I. 
INTRODUCTION 
A. 
In accordance with Virgin Island Code, Title 23, the VITEMA Act (5233) of 1986 
and VI Emergency Management Act of 2009, VITEMA establishes direction and 
control of a Territory response based on functional support groups, involving 
broad participation from Territory, private and voluntary relief organizations, 
and compatible with the federal response and recovery concepts of operation.  
B. 
Each territorial agency tasked with a responsibility in the TEOP or supporting 
plans and annexes shall develop, maintain, and ensure their ability to implement 
response plans in support of the TEOP, as required by Virgin Islands Code Title 
23, Chapter 10 of Territorial Emergency Management Act. 
C. 
Emergency response personnel, equipment, and facilities will maintain a state 
of readiness to save lives, prevent or minimize damage to property, protect 
public health and provide assistance to all who are threatened by an emergency 
or become victims of a disaster. 
D. 
The Territory will coordinate emergency response and recovery operations 
across the various U.S. Virgin Islands, including support provided by other 
states, the federal government, Non-Governmental Organizations (NGO), and 
private organizations. 
E. 
The Governor will determine the level and duration of commitment of Territorial 
resources. 
F. 
The TEOP provides the foundation for territorial emergency response and 
recovery operations. 
II. PURPOSE 
A. 
Identifies the role of territorial government and coordinating non-governmental 
organization (NGO) and private sector partners before, during, and after a 
disaster, large-scale emergency, or event affecting the U.S. Virgin Islands. 
B. 
Establishes the concepts and policies under which all elements of territorial 
government and coordinating NGOs and private sector partners will operate 
during emergencies. 
C. 
Outlines responsibilities of Territorial government officials, agencies, and private 
organizations that the annexes specify in more detail. 
D. 
Provides the framework within which more detailed emergency plans or 
procedures can be developed and maintained. 
E. 
Provides a framework for a prompt, effective and seamless assistance to U.S. 
Virgin Islands and individual Districts when federal assistance is requested. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
III. SCOPE 
A. 
Designed to address all hazards identified in the Threat and Hazards 
Identification and Risk Assessment (THIRA) as well as the Territory’s Hazard 
Mitigation Plan. 
B. 
Establishes the policies and procedures by which the Territory will coordinate 
Territory and federal response to disasters affecting the U.S. Virgin Islands and 
its citizens. The mechanisms include coordination structure and processes for 
incidents requiring: 
1. 
Local-to-local support through Territory Mutual Aid (TMA). 
2. 
Territory support to St. Croix District and St. Thomas-St. John-Water 
Island District.  
3. 
State-to-Territory support through the Emergency Management 
Assistance Compact (EMAC) or other appropriate instruments; and public 
and private sector incident management integration. 
4. 
Direct federal support through federal agencies acting within their own 
authorities.  
C. 
Describes how the Territory will mobilize resources and conduct activities to 
guide and support Territory efforts through preparedness, response, recovery, 
and mitigation. 
D. 
Addresses the various types of emergencies likely to occur, from Territory 
emergencies  with minor impact to catastrophic disasters. 
E. 
Describes the responsibilities of the Government of the Virgin Islands (GVI) 
agencies in executing effective response and  recovery operations and assigns 
specific functions and responsibilities to the   appropriate GVI agencies and 
organizations. 
F. 
Outlines the types of assistance private sector and voluntary organizations 
provide. 
G. 
Supports the National Incident Management System (NIMS) and the Incident 
Command System (ICS) including Community Lifelines.1 
 
 
                                                     
1 https://www.fema.gov/emergency-managers/practitioners/lifelines  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
IV. PLAN STRUCTURE 
A. 
The TEOP describes a territory-wide, integrated approach to incident 
management and includes overarching planning assumptions, roles and 
responsibilities, concept of operations, specific hazard plans, and plan 
maintenance guidance. 
B. 
Emergency Support Functions (ESF)-specific annexes and appendices provide 
all-hazard overviews from the coordination agencies with input from 
stakeholders. 
C. 
Hazard-specific annexes and appendices provide a detailed concept of 
operations tailored specifically to the most-likely incidents to cause catastrophic 
impact to the Territory.  
V. SITUATION AND ASSUMPTIONS 
A. 
Situation 
1. 
The U.S. Virgin Islands is a group of Caribbean islands, comprised of the 
islands of St. Croix, St. Thomas, St. John, Water Island, and smaller islets and 
cays. The Territory encompasses about 134 square miles. 
2. 
Based on the 2020 Census, the U.S. Virgin Islands has a population of 
87,146─which indicates a significant drop from its 2010 population of 
106,405. 
a. The Territory maintains specific procedures for communicating with 
at-risk 
populations 
through 
the 
At-Risk 
Populations 
Communications Procedures Annex (2024). This annex ensures 
targeted, culturally competent, and accessible communications 
across multiple channels for older adults, individuals with access and 
functional needs, those with limited English proficiency, individuals 
with limited transportation/financial resources, children, and persons 
experiencing homelessness. The annex establishes a phased 
approach 
for 
message 
development, 
distribution 
channel 
identification, and information presentation while emphasizing 
cultural competency and integration with other emergency plans. 
3. 
The tourism population in the U.S. Virgin Islands is significant. The following 
tourist information for 20192 is provided by the V.I. Bureau of Economic 
Research: 
a. 
Cruise ship passenger arrivals: 1,433,122 
• 
St. Thomas/St. John:1,391,802 
• 
St. Croix: 55,806 
                                                     
2 Note:  2020 statistics were not used due to the impacts from the COVID-19 pandemic. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
b. 
Airline passenger arrivals: 419,247 
• 
St. Thomas/St. John: 329,300  
• 
St. Croix: 89,946 
4. 
The proximity of the large percentage of the Territory’s residential 
population to the coastline combined with a huge tourist population 
creates the potential for a catastrophic loss of life and property due to an 
array of hazards. 
5. 
The U.S. Virgin Islands is vulnerable to a variety of hazards threatening 
human loss and injury; property damage; environmental degradation; 
destruction of tourism and industrial resources; and disruption of 
government, social, and economic activities. A synopsis to the Territory 
hazard analysis is included in Appendix A to this Base Plan. 
a. 
The Territory conducted planning analysis based on a hazard’s 
relative frequency, potential severity, and historic information 
available.  
b. 
Hazards generally fall into four categories:  natural; accidental; 
civil or political incident; or terrorist or criminal incident. In a 
major disaster situation, hazards in more than one of these 
categories may occur concurrently. 
c. 
Hazards outlined in the Territorial Hazard Analysis are 
considered potential risks to the U.S. Virgin Islands. Historically, 
the greatest risk is from natural hazards such as hurricanes, and 
earthquakes. However, the expansion of Water and Power 
Authority (WAPA) and the use of Liquified Petroleum Gas (LPG) 
increases hazardous materials risks in the Territory.  
d. 
With the update of the Hazard Mitigation Resiliency Plan it was 
also noted that threats such as other growing threats are 
discussed, such as Sargassum and extreme heat, which have 
potential economic consequences. Specific Annexes will be 
developed as data is accumulated. 
e. 
No single threat or hazard exists in isolation and incidents may 
create multiple impacts. The TEOP focuses on core capabilities 
that can address emergent impacts as part of crisis and 
contingency planning courses of actions. 
6. 
The government is led by an elected Governor and is comprised of 42 
agencies. 
7. 
The Territory is committed to Continuity of Government (COG) and 
Continuity of Operations (COOP) programs. The Territory has developed 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
standalone COG and COOP Plans for each Lead Emergency Support 
Function in considering all potential hazards to the Territory.  
8. 
Incidents are typically managed at the lowest possible geographic and 
organizational level. As such, direction of emergency operations will be 
executed within the St. Croix District and St. Thomas-St. John-Water Island 
District. The Territory maintains emergency operations centers (EOC) in St. 
Thomas, St. Croix, and St. John to manage island-specific response 
operations and coordinate local-to-local support through TMA. 
9. 
VITEMA maintains an Emergency Communications Center (ECC) in St 
Thomas and St Croix to serve as the 24/7 public safety answering point 
(PSAP).  
10. 
If the cause of an incident is determined to have been a terrorist act, 
appropriate federal agencies will likely assume direction and control of the 
investigation, in coordination with Territory authorities. Territory resources 
will continue to be responsible for all non-investigatory response and 
recovery functions. 
11. 
The TEOP can be activated with or without a Presidential Disaster 
Declaration. 
12. 
Territorial agencies and NGO’s are prepared to fulfill responsibilities 
assigned to them in the TEOP. Territorial agencies’ abilities to execute their 
response and recovery tasks are enhanced through the development, 
maintenance, and exercising of agency continuity plans. 
13. 
The established Business Emergency Operations Center (BEOC) serves as 
the primary interface between the public and private sectors during 
disasters, enabling critical coordination of resources and information 
sharing to support response operations. This capability is integrated into 
the Territorial Emergency Operations Plan to ensure systematic 
engagement of private sector partners during emergencies. 
14. 
VITEMA briefs appropriate Territorial officials and private organizations on 
their roles and responsibilities in the execution of this TEOP.  
15. 
The TEOP complies with appropriate territory and federal laws and 
authorities (see Part XII, Authorities and References). 
16. 
A planned and coordinated response on the part of territory and local 
officials can save lives, protect property, and more quickly restore essential 
services. The Territory maintains the United States Virgin Islands Disaster 
Recovery Plan to manage the long-term restoration of critical lifelines 
following a disaster. 
a. 
The Virgin Islands Office of Disaster Recovery (VIODR) was 
established by Executive Order No. 487-2019 on 17 June 2019.  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
b. 
The VIODR Director is the Governor’s Authorized Representative 
(GAR) for the purposes of federal disaster recovery matters and 
administers the federal disaster assistance program on behalf of 
the Territory of the U.S. Virgin Islands. VIODR is under the Virgin 
Islands Public Finance Authority (VIPFA).  
c. 
VIODR provides executive oversight and coordination to all 
disaster recovery program funds and operations, thus ensuring 
compliance, efficiency, and effectiveness. 
B. 
Assumptions 
1. 
Incidents or special events, including large-scale emergencies, require full 
coordination of operations and resources, and may: 
a. 
Occur at any time with little or no warning. 
b. 
Require significant information sharing across islands and 
between the public and private sectors. 
c. 
Have a significant territory-wide impact requiring significant 
intergovernmental coordination. 
d. 
Can result in mass casualties; displaced persons; property loss; 
environmental damage; and disruption of the economy and 
normal life support systems, essential public services, and basic 
infrastructure. 
2. 
Incident effects may be minimized by the proactive notification and 
deployment of Territory resources in anticipation of or in response to major 
incidents in coordination and collaboration with NGOs, private, and federal 
entities. A catastrophic incident will: 
a. 
Require resources to assist individuals with disabilities and those 
with access and functional needs. 
b. 
Impact critical infrastructure across sectors. 
c. 
Exceed the capabilities of the Territory, NGOs, and private sector 
partners. 
d. 
Attract a sizeable influx of public, private, and voluntary 
resources, including independent and spontaneous volunteers. 
e. 
Require short-notice asset coordination and response. 
f. 
Require prolonged, sustained incident management operations 
and support activities for long-term community recovery and 
mitigation. 
3. 
Agencies, organizations, and individuals are aware of responsibilities 
assigned to them in this plan and respond as directed in this plan. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
4. 
Territory officials are aware that a disaster can exhaust capabilities and 
require mutual aid assistance. 
5. 
Federal capabilities and resources can augment territorial efforts to meet 
disaster related needs, particularly if responses are beyond the capabilities 
of each island/District. 
6. 
Government agencies provide information, guidance, and coordination to 
private and volunteer organizations that cooperate with government 
officials at all levels. 
7. 
The likelihood that an incident uniformly impacts the entire Territory is 
minimal. Physical damage, economic impacts, and community-level 
consequences are expected to vary. Depending on the emergency, impacts 
may be exacerbated by the incident type, geographic location, and/or pre-
existing population vulnerabilities. 
VI. CONCEPT OF OPERATIONS 
A. 
General 
1. 
This Plan, and its annexes, support the National Response Framework 
(NRF).  
2. 
This plan is supported by Territorial and federal organizational levels of 
Emergency Management.  
3. 
Preparedness, 
response, 
recovery, 
and 
mitigation 
are 
general 
responsibilities of all levels of government working together to provide a 
system to meet the needs of the public.  
4. 
Emergency operations will be initiated at the lowest level able to effectively 
respond to the situation. 
5. 
Virgin Island Code, Title 23, the VITEMA Act (5233) of 1986 and VI 
Emergency Management Act of 2009, delegates to the Governor ultimate 
responsibility and authority for all emergency management activities in the 
Territory. The Governor can delegate authority but not responsibility.  
6. 
The VITEMA Director supervises all emergency operations at the EOC, 
coordinates emergency functions of other Territory agencies as dictated by 
the TEOP, and acts as the central point of contact for all assistance from 
outside the Territory. 
7. 
When an emergency exceeds the Territory’s capability to respond, VITEMA 
coordinates requests to the proper federal agencies, as outlined in the NRF 
and all federal disaster response and recovery plans and legislation.  
8. 
The U.S Virgin Islands must be prepared to manage initial emergency 
activities for at least 96 hours, regardless of the size and scope of the 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
incident. Federal government resources may not be available in the early 
stages of an emergency. 
9. 
The Territory has established a comprehensive Training Matrix system to 
ensure personnel readiness and capability across all emergency 
management functions. This matrix tracks personnel training requirements 
and completions according to tenure levels and categorizes training 
aligned with FEMA's Community Lifelines framework. The matrix generates 
Key Performance Indicator (KPI) reports that enable leadership to monitor 
training status, identify gaps, and allocate resources effectively across the 
Territory. This data-driven approach supports consistent qualification 
standards and helps maintain operational readiness for response and 
recovery operations. 
10. 
Training completion records within the matrix document position-specific 
qualifications, required certifications, and specialized skills that support 
activation of EOC positions and field response roles. The Training Officer 
maintains this centralized system, conducts regular compliance reviews, 
and provides quarterly status updates to the Emergency Management 
Council. This systematic tracking ensures the Territory maintains 
appropriate levels of qualified personnel to staff all emergency support 
functions during extended operations. 
B. 
Emergency Support Functions 
1. 
The Territory has established ESF with Territory agencies and volunteer 
organizations to support response and recovery operations to mirror the 
NRF. 
2. 
A Territory agency within each ESF has coordinating responsibility for the 
planning and implementation of each ESF. The exception is WAPA who has 
responsibility for ESF 12 (Energy). 
3. 
By Executive Order, the designated coordinating agency will coordinate the 
development and preparation of ESF annex and any supporting Standard 
Operating Guides (SOG) and Procedures (SOP). 
4. 
Coordinating agencies, support agencies and volunteer organizations are 
incorporated into plans and annexes. 
5. 
Additional Territory agencies may be required to support each ESF and 
hazard-specific annex. 
6. 
ESFs and hazard-specific annexes and coordinating agencies are 
designated in Table 1. 
C. 
Access and Functional Needs  
7. 
The TEOP has taken into consideration Population-Specific Planning  
a. Identification of vulnerable populations  
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December 2024 
b. Specialized transportation resources 
c. Medical needs consideration, under which Department of Health has 
approved Patient Movement Plan  
8. 
Evacuation Procedures 
a. Island-specific evacuation routes 
b. Transportation assistance protocols  
c. Special Facility evacuation plans  
9. 
Shelter Operations  
a. Accessibility requirements  
b. Medical support capabilities  
c. Service animal accommodations  
10. 
Coordinating agencies, support agencies and volunteer organizations are 
incorporated into plans and annexes. 
11. 
Additional Territory agencies may be required to support each ESF and 
hazard-specific annex. 
12. 
ESFs and hazard-specific annexes and coordinating agencies are 
designated in Table 1. 
 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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Table 1. ESF and Hazard-Specific Annex Coordinating Agencies 
ESF 
TITLE 
Coordinating Agency 
Emergency Support Functions 
ESF 1 
Transportation 
Department of Property and Procurement 
ESF 2 
Communications   
Bureau of Information and 
Technology 
ESF 3 
Public Works and Engineering   
Department of Public Works 
ESF 4 
Firefighting   
VI Fire and Emergency Medical Services 
ESF 5 
Emergency Management   
Virgin Islands Territorial Emergency 
Management Agency 
ESF 6 
Mass Care, Emergency Assistance, 
Housing, and Human Services   
Department of Human Services 
ESF 7 
Resource Management  
Department of Property and Procurement 
ESF 8 
Public Health and Medical Services   
Department of Health 
ESF 9 
Search and Rescue 
VI Fire and Emergency Medical Services 
ESF 10 
Oil and Hazardous Materials Response 
VI Fire and Emergency Medical Services 
ESF 11 
Agriculture and Natural Resources   
Department of Agriculture 
ESF 12 
Energy 
Virgin Island Energy Office 
Water and Power Authority 
ESF 13 
Public Safety and Security   
VI Police Department 
ESF 14 
Long-Term Community Recovery   
Office of Disaster Recovery 
ESF 15 
Public Information 
Governor’s Office/ Communications Division 
Hazard-specific Annexes 
NA 
Active Threat/Active Shooter 
VI Police Department 
NA 
Cyber Attack  
Bureau of Information and 
Technology 
NA 
Hurricane/Tropical Storm and Flooding  
Virgin Islands Territorial Emergency 
Management Agency 
NA 
Earthquakes  
Virgin Islands Territorial Emergency 
Management Agency 
NA 
Terrorism  
Virgin Islands Territorial Emergency 
Management Agency 
NA 
Tsunamis  
Virgin Islands Territorial Emergency 
Management Agency 
NA 
Pandemic-Human  
Department of Health 
 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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D. 
Emergency Operations 
1. 
The Territory has established a system of emergency classification levels 
that increase from “I” to “III” based on activation levels. The emergency 
classification system specified in Appendix B is key for activating EOCs and 
mobilizing Territory resources ─ each department or agency implements 
internal personnel notification procedures when notified of an emergency 
classification. 
a. 
EOC staffing is determined by the type and scope of the incident. 
b. 
Territory agencies or the EOC may conduct some level of response 
operations at any classification level but responses requiring 
multiple ESF-level coordination normally occur at Class II.  
c. 
A Class II emergency normally includes activation of the TEOC. 
d. 
A Class I emergency is normally accompanied by a Governor’s State 
of Emergency. 
2. 
When an emergency occurs, VITEMA will be notified by it partners across 
the Territory or direct observation from the ECCs in St Thomas or St Croix.  
3. 
VITEMA may activate one or more EOCs in St. Thomas, St. Croix, and St. 
John to manage island-specific and territory-wide response operations. See 
Appendix B to this Base Plan for the EOC activation levels. 
4. 
Awareness of an incident is not a mandate for VITEMA to coordinate 
operations.  
a. 
In most cases, a Territory agency exercises its own authority to 
maintain public order and safety or to exercise its statutory 
functions in response to an incident.  
b. 
VITEMA’s authority does not impede state agencies from carrying 
out their responsibilities under law. 
5. 
Private and volunteer organizations augment local resources whenever 
possible. They coordinate personnel and resources with the Territory to 
avoid duplication of effort or omission of needed assistance. 
6. 
On behalf of the Governor, VITEMA evaluates requests for assistance. If 
VITEMA determines assets have been used fully and Territory resources are 
available, VITEMA and ESF coordinating agency provides coordination of 
Territory resources through TMA. 
7. 
The Governor may authorize use of Territory resources by declaring a “State 
of Emergency” according to Virgin Island Code, Title 23, the VITEMA Act 
(5233) of 1986, under which response and recovery provisions of the TEOP 
are implemented. Appropriate assistance may also come without a state 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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emergency declaration if resources are needed to save lives or relieve 
extreme suffering and hardship. 
a. 
The Governor or designee may verbally issue a State of Emergency 
or activate the TEOP, and then complete the written Executive 
Order. 
8. 
The Governor and the heads of Territory agencies are referred to as the 
Emergency Management Council (EMC). The EMC coordinate their 
assigned emergency responsibilities either in person or virtually. The EMC 
also serves as the EMAP Accreditation Advisory Committee. 
9. 
Territory emergency management activities emanate from the EOC. 
Depending on the nature of the incident, other direction and control 
facilities may be activated (District EOC and/or mobile command post). 
10. 
Agency functions critical to territorial emergency response and recovery 
operations shall have restoration priority. Top priorities for incident 
management are to:  
a. 
Save lives and protect the health and safety of the public, 
responders, and recovery workers. 
b. 
Protect property and mitigate damages and impacts to individuals, 
communities, and the environment. 
c. 
Protect and restore critical infrastructure and key resources. 
d. 
Facilitate recovery of individuals, businesses, communities, 
governments, and the environment. 
11. 
Damage assessment and advisory teams are dispatched in accordance with 
procedures in damage assessment procedures. This activity does not 
require a Governor’s Declaration. 
12. 
Warnings are disseminated through a collaboration of ESF 5 (Emergency 
Management) and ESF 15 (Public Information). The Governor’s Office and 
VITEMA coordinates state warning activities. 
13. 
If Territory government capabilities (financial or operational) are exhausted, 
the Governor can request several types of federal disaster assistance. If the 
request is approved, provision of assistance and management proceed. 
14. 
Restoration of Lifelines 
a. 
The Federal Emergency Management Agency (FEMA) developed 
the community lifelines construct to increase effectiveness in 
disaster operations.  
b. 
Lifelines represent the most fundamental services in the community, 
that when stabilized, enable all other aspects of society.  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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c. 
Lifelines provide an outcome-based, survivor centric frame of 
reference 
that 
assists 
with 
identifying 
interdependencies, 
prioritizing operations, and facilitating communications. Table 2 
highlights the FEMA Lifeline descriptions and objectives. 
Table 2: Lifelines and Descriptions 
Lifeline 
Components 
Related ESF 
Coordinating Agency  
Safety and Security  
• Law Enforcement/Security  
• Fire Service  
• Search and Rescue  
• Government Service 
• Community Safety  
• ESF 4 
• ESF 8 
• ESF 9 
• ESF 10 
• ESF 13 
VIFEMS  
VIPD 
Food, Hydration, 
Shelter 
• Food 
• Water  
• Shelter 
• Agriculture 
• ESF 6 
• ESF 11 
• ESF 14 (BEOC) 
DHS 
VIDA 
BEOC 
Health & Medical 
• Medical Care 
• Public Health  
• Patient Movement 
• Medical Supply Chain  
• Fatality Management 
• ESF 8 
• ESF 14(BEOC) 
DOH 
DOJ 
BEOC 
Energy (Power & Fuel) 
• Power Grid 
• Fuel (gas, diesel, and 
propane) 
• ESF 12 
• ESF 14(BEOC) 
VIEO 
WAPA 
BEOC  
Communications 
• Infrastructure 
• Responder Communications  
• Alerts, Warnings, and 
Messages 
• Finance 
• 9-1-1 and Dispatch 
• ESF 2 
• ESF 3 
• ESF 3 
• ESF 5 
 
BIT 
DPW  
VIWMA 
VITEMA 
Transportation  
• Highway/Roadway/Motor 
Vehicle 
• Mass Transit 
• Railway 
• Aviation 
• Maritime 
• ESF 1 
• ESF 13 
 
P&P 
VIPD 
Hazardous Materials  
• Facilities  
• Hazardous Materials, 
Pollutants, Contaminants 
 
 
 
• ESF 10 
VIFEMS 
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Lifeline 
Components 
Related ESF 
Coordinating Agency  
Water Systems  
 
• Potable Water Infrastructure 
  
• Wastewater Management 
• ESF 12 
 
• ESF 3 
 
• ESF 10 
 
• VIEO 
• WAPA 
• DPW 
• WMA 
• VIFEMS 
• DPNR 
 
d. 
ESF 5 (Emergency Management), ESF 7 (Resource Management), 
and ESF 15 (Public Information) support all lifelines. 
e. 
Following a disaster or large-scale incident, the Territory will lead 
the restoration of critical functions, services/programs, vital 
resources, facilities, and infrastructure to affected areas. 
15. Resource Management Systems 
a. 
The Territory has implemented a comprehensive resource 
management system utilizing NIMS resource typing definitions. The 
system maintains a current resource typing library that is updated 
annually to reflect changes in capability definitions and 
requirements. All program resources have documented typing 
requirements that clearly define their capabilities and limitations. 
b. 
The resource tracking component provides real-time inventory 
management capabilities including current location, operational 
status, and availability of all program resources. The system 
maintains complete maintenance records, monitors resource 
deployments, and generates automated alerts for low inventory 
levels, 
upcoming 
maintenance 
requirements, 
certification 
expirations, and pending resource requests. 
c. 
Resource testing and maintenance procedures are established 
according to resource type. The procedures document all 
maintenance activities, associated costs, preventive maintenance 
schedules, and equipment failure incidents. This documentation 
supports lifecycle planning and resource replacement scheduling.  
16. Communications System Testing and Maintenance 
a. 
The Emergency Management Program shall conduct regular testing 
of all communications systems according to an established 
schedule. This schedule shall include daily system checks, weekly 
functional tests, monthly end-to-end tests, quarterly backup 
systems tests, and an annual full-scale communications exercise. 
Each test shall verify system functionality, interoperability, and 
performance against established standards. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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b. 
All testing activities shall be thoroughly documented to include test 
results and outcomes, system performance metrics, identified issues, 
corrective actions taken, and maintenance records. The program 
shall track and report on key system performance metrics including 
system availability, message delivery times, error rates, coverage 
verification, and interoperability validation. 
E. 
Direction, Coordination and Control 
1. 
Direction and control of a Territory emergency resides with the VITEMA 
Director and the EOC Command Section (see ESF 5 Annex, Emergency 
Management, for command organization). 
a. 
The Director of VITEMA will coordinate all territorial agencies and 
departments mobilized pursuant to this plan. 
b. 
In the event of an emergency situation beyond the Territory 
government’s control capabilities, and to assure efficient response 
and use of resources, the VITEMA Director, under a State of 
Emergency declared by the Governor and at the direction of the 
Governor, may assume direct operational control over all or any 
necessary part of the emergency operations functions within the 
Territory. 
F. 
National Incident Command System 
1. 
The Territory has adopted NIMS, as outlined in DHS protocol, as the 
standard incident management structure within the U.S. Virgin Islands. 
2. 
ICS is the standard for on-scene emergency management throughout the 
Territory. 
3. 
Each ESF Coordinating and Support agency will integrate the principles of 
NIMS and ICS into their respective ESF agency planning and response 
operations, and ensure their personnel are trained on the principles of both 
NIMS and ICS. 
4. 
Incident Command 
a. 
In accordance with ICS, the senior on-scene official of the first 
responding agency (VI Fire and Emergency Medical Services 
[VIFEMS], VI Police Department [VIPD], or Emergency Medical 
Service [EMS]) to arrive at the incident will assume command and 
organize the response. 
b. 
The Incident Commander (IC) can be from a district unit of 
government or from a Territorial or federal agency, as long as they 
have the expertise, capability, and authority. The IC may change as 
the incident progresses. 
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c. 
The IC has tactical control of personnel and equipment resources 
employed at the incident site. 
d. 
The IC is the only authority who may authorize the release of any 
resources. No resources may leave the incident until authorized to 
do so. 
e. 
The EOC has operational control of personnel and equipment 
resources of their respective islands. 
f. 
The EOC has strategic control of personnel and equipment 
resources supporting the Territory. 
g. 
The Emergency Operations Center Standard Operating Procedures 
(EOC SOP), developed under the Operations Division, includes 
comprehensive checklists for all Emergency Support Functions 
(ESFs) to ensure efficient and coordinated response operations.  
5. 
Unified Command 
a. 
If the incident affects a wide geographic area, or if agencies with 
distinctly different capabilities need to perform several functions, a 
transition may occur from an Incident Command to a Unified 
Command. 
b. 
The local IC or federal On-Scene Coordinator (OSC) may 
recommend the formation of a Unified Command. 
c. 
When a Unified Command is implemented, the IC and other 
representative responding within their authority meet and take the 
following measures: 
(1) 
Agree to act in concert, or at least coordinate efforts. 
(2) 
Agree on objectives, priorities, and strategies. 
(3) 
Recognize each other's authorities, capabilities, limitations, 
roles, and responsibilities. 
(4) 
Establish lines and methods of communication. 
d. 
The Unified Command may appoint a single person to carry out 
command decisions.  
e. 
The Unified Command and response generally continue until the 
response is terminated, or the roles of all but one level of 
government have diminished to the point where the primary level 
of government provides a single Incident Command. 
f. 
Seniority is ranked according to competency and breadth of 
responsibility. Competency is determined by meeting the 
requirements of training and experience. All officials meeting the 
U.S. Virgin Islands Territorial Emergency Operations Plan 
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competency criteria are senior to those who do not, unless 
specifically charged with overriding authority applicable to the 
specific incident situation by Territory or federal law. 
g.
VITEMA will coordinate core incident command functions including
Planning, Operations, Logistics and Finance
h.
Use of ICS throughout a response and recovery is encouraged.
G.
Damage Assessment
1.
Upon notice that a potentially damaging incident has occurred, “situation
monitoring” activities are established at SEOC.
2.
Raw damage information is gathered and reported to the EOC, where
Damage Assessment and Incident Analysis refine the raw data into
information useful for effective management decisions. This involves three
groups.
a.
Operations Section:  Monitor input from various collectors and
overall mission management.
b.
Planning Section:  Analyze collected information to identify
significant trends. Develop draft recommendations of response
priorities.
c.
ESF 15 (Public Information):  Disseminate information in a variety of
reports and through the media via the Public Information Officer
(PIO). Provide information to all persons with operational needs
quickly enough for them to take appropriate and timely action(s).
3.
After evaluating the damage information, the VITEMA Director may decide
to organize state damage assessment personnel (survey teams) to assess
and enhance local efforts.
4.
The Territory will form damage assessment teams as needed with the
appropriate representatives.
5.
In a catastrophic disaster, the VITEMA Director may request damage
assessment support from FEMA.
6.
If a request to the President for federal assistance seems imminent, VITEMA
and FEMA conduct a joint, on-site, preliminary damage assessment.
Appropriate personnel accompany the federal and Territory damage survey
teams and participate in the survey.
7.
Damage assessment information gathered from the field is recorded on
forms provided by VITEMA/FEMA.
8.
Two types of damage reports are completed.  One records damage to
private property (individuals, residences, and businesses), and the other
documents damage to public facilities (infrastructure).
U.S. Virgin Islands Territorial Emergency Operations Plan 
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9.
All damage reports coming to EOC are tabulated, recorded, and maintained
for access and review.
10.
Responsibilities for damage assessment are assigned based on the
infrastructure associated with each ESF.
11.
Damage assessment will be synthesized and reported by lifelines.
VII.
INFORMATION COLLECTION AND DISSEMINATION
A.
General
1.
VITEMA has developed a list of Essential Elements of Information (EEI)
applicable to all hazards. The list is included in Appendix E.
2.
VITEMA maintains computer-based planning aids, such as HAZUS for
hazard mitigation planning. HAZUS allows planners to model and estimate
damages from natural hazards disasters based on severity.
3.
FEMA will request data be collected, organized, and reported by
community lifelines.
4.
A common operating picture based on situational awareness is needed in
order to develop action plans, produce Situational Reports, identify
shortfalls, and manage resources.
5.
It is important to obtain and disseminate the most current and accurate
disaster related information possible.
6.
ESF 5 (Emergency Management) conducts a preliminary analysis to ensure
the Territory’s residents life safety and protection of property upon
receiving initial data after an incident.
7.
Providing emergency information to the public and all levels of government
is essential to avoid or minimize loss of life and property if a disaster is
imminent or has occurred.
B.
Information Flow
1.
Information obtained in the field, or from other sources, is made available
to VITEMA as soon as possible. However, routing of the information is
dependent upon if the EOC is staffed.
2.
In the event an EOC is not activated, either the St. Croix or St. Thomas
VITEMA office will receive information from sources throughout the
Territory and pass it on to the appropriate EOC Manager.
a.
The EOC Manger, in accordance with SOPs, records and notifies the
VITEMA Deputy Director of Operations.
3.
VITEMA will notify Territorial agencies, ESF coordinators, and volunteer
groups and the general public as required for further action.
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4. 
When the EOC is activated, the Operations Section will receive and 
disseminate information.  
5. 
Information will flow from and internally between various sources including 
EOCs, ESFs, Territory agencies, other federal warning points, and personnel 
in the field. 
C. 
Information Collection and Dissemination 
1. 
Regular Testing Schedule  
a. 
Monthly testing of primary systems  
b. 
Quarterly tests of backup systems 
c. 
Annual end-to-end testing  
2. 
Alternate Systems 
a. 
Redundant communications pathways 
b. 
Mobile communications platform 
c. 
Satellite backup systems 
3. 
Documentation  
a. 
Test results and corrective actins  
b. 
System reliability metrics 
c. 
After-action reviews of system failures  
D. 
State Warning Point 
1. 
VITEMA provides the Territory with a 24-hour, single point, emergency 
communications center to receive and disseminate information, and initiate 
warnings and notifications to Territory governmental officials of a situation 
that could threaten the general welfare, health, safety, and/or property of 
the Territory’s residents and visitors. 
2. 
VITEMA will coordinate with all appropriate departments/agencies and 
organizations to ensure timely warning readiness in case of a disaster or 
emergency. 
3. 
VITEMA will maintain and test alternate warning systems for use in the 
event the existing primary system is damaged and rendered inoperable. 
4. 
VITEMA will notify the EOCs, FEMA Region II, and ESF stakeholders 
whenever the potential for an emergency exists. 
5. 
In the event of an imminent or actual disaster, VITEMA will initiate actions 
to warn districts and other Territorial agencies by all means necessary. 
6. 
VITEMA will receive Weather Advisories from the National Weather Service 
(NWS) using the National Warning System (NAWAS) and other electronic 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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means. VITEMA will forward weather advisories throughout State and local 
communications networks to alert local governments to conditions. 
7. 
The Emergency Notification System is primarily used by emergency 
management, public safety, and public health organizations to contact 
either a localized segment of the public, threatened populations, or 
specialized groups, such as hospitals and response teams. 
8. 
A variety of warning systems are available for use during emergency 
operations including: 
a. 
Landline Telephone/Voice Over Internet Protocol (VOIP) 
b. 
Cellular phone 
c. 
Satellite phones/radios 
d. 
800 MHz radios 
e. 
Integrated Public Alert and Warning System (IPAWS) 
(1) 
Emergency Notification System 
(2) 
National Alert Warning System (NAWAS) 
(3) 
Emergency Alert System (EAS) 
(4) 
Wireless Emergency Alerts (WEA) 
(5) 
National Oceanic and Atmospheric Administration (NOAA) 
Weather Radio 
f. 
Alert VI 
g. 
Telecommunications Device for the Deaf (TDD) or Text Telephone 
Relay (TTY) 
h. 
Warning Sirens 
i. 
Web postings 
j. 
Social Media 
k. 
Roving Patrols 
9. 
Emergency Communication Systems are further detailed in ESF 2 
(Communications).  
E. 
Emergency Warnings 
1. 
Providing emergency warnings to the public and all levels of government 
is essential to avoid or minimize loss of life and property if a disaster is 
imminent or has occurred. 
2. 
Upon the Declaration of a State of Emergency by the Governor, ESF 15 
(Public Information) will be the primary coordinating element in the 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
dissemination of public information during emergency and disaster 
operations. 
a. 
Details on the roles, responsibilities, resources, and methods are 
detailed in the ESF 15, Public Information Annex.  
b. 
Prescription messages are managed by the Governor’s Office.  
3. 
ESF 15 (Public Information) will release territorial government news releases 
to the media territory-wide and to national and international media as 
appropriate, with priority consideration given to the medium that can most 
effectively communicate with the at-risk population. 
4. 
Processes to disseminate information of public interest will follow 
established public information channels [radio, television (both broadcast 
and cable), print, news release, social media, and live interviews]. 
F. 
Notification Systems  
1. 
Alert VI  
a. 
Alert VI is the Virgin Islands all-hazards alert and notification system. 
b. 
Individuals must register in Alert VI to receive emergency 
notifications. 
c. 
Alert VI issues critical emergency related information including 
instructions and recommended protective actions developed in 
real-time by emergency services agencies. 
d. 
Notification is accomplished through various communications 
systems including email, cell phone, landline, fax, and web postings. 
e. 
The information provided includes severe weather warnings, 
significant road closures, hazardous materials spills, and other 
emergency conditions. 
f. 
Additionally, Alert VI issues, through alerts and press releases, 
information regarding response actions being taken by Cabinet 
Agencies and protective actions that should be taken to protect 
individuals, families, and properties. 
g. 
Text-to-speech and audio recording is also built into the system to 
meet American with Disabilities Act requirements.  
2. 
All-Hazards Siren Warning System 
a. 
General 
(1) 
The siren system is made up of sirens located on St. Croix, 
St. John, St. Thomas, and Water Island  
(2) 
The All-Hazards Siren Warning System includes 44 sirens 
placed along USVI throughout the Territory.  
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(3) 
The system is set up to notify people who are outside of 
buildings. 
(4) 
The system was developed primarily for no-notice or short 
disaster awareness lead times.  
(a) 
The All-Hazards Siren Warning System is 
designed to activate for regional and distant 
tsunamis. However, during a local tsunami event 
where impact could occur within 10 minutes, 
activation of the sirens will be delayed until 
official confirmation is received from the Tsunami 
Service Provider to ensure accuracy of the alert. 
(5) 
System design allows all-hazards capability but currently 
limited to tsunami-related functions 
(6) 
The system alerts the public using tones, pre-recorded voice 
messages, and actual voice messages. 
b. 
System configuration 
(1) 
Tsunami 
(2) 
Hurricane 
(3) 
Flash Flood 
(4) 
Curfew 
(5) 
Hazardous 
(6) 
All Clear 
(7) 
Public Address 
c. 
System testing 
(1) 
Silent testing conducted once a month. 
(2) 
Live testing to be conducted once a month using one of the 
preprogramed alerts on a rotating basis. 
(3) 
During exercises as appropriate. 
d. 
Siren Activation 
(1) 
The All-Hazards Warning System is activated by the ECCs. 
(2) 
Each ECC has the capability to activate the entire territorial 
siren system or selected sirens as needed. 
(3) 
The first ECC to receive a tsunami warning through the 
National Warning System or from the Pacific Tsunami 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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Warning Center (PTWC) will immediately activate the siren 
system for the areas identified in the warning message.  
(4) 
Once the sirens are activated, the ECC will implement their 
call down procedures. 
3. 
Integrated Public Alert and Warning System 
a. 
IPAWS is a modernization and integration of the nation’s alert and 
warning infrastructure. 
b. 
IPAWS provides an effective way to alert and warn the public about 
serious emergencies using the EAS, WEA, NOAA Weather Radio3, 
and other public alerting systems from a single interface.  
c. 
VITEMA will test the EAS thru IPAWS once a month. 
4. 
Wireless Emergency Alert System 
a. 
WEA is a public safety system that allows customers who own 
certain wireless phones and other enabled mobile devices to receive 
geographically targeted, text-like messages alerting them of 
imminent threats to safety in their area. 
b. 
The technology ensures that emergency alerts will not get stuck in 
highly congested areas, which can happen with standard mobile 
voice and texting services. 
c. 
WEA enables government officials to target emergency alerts to 
specific geographic areas through cell towers that broadcast the 
alerts for reception by WEA-enabled mobile devices. 
5. 
Emergency Alert System 
a. 
EAS is a national public warning system that requires TV and radio 
broadcasters, cable television systems, wireless cable systems, 
satellite digital audio radio service providers, direct broadcast 
satellite service providers and wireline video service providers to 
offer the President a communications capability to address the 
American public during a national emergency. 
b. 
EAS may be used by Territory authorities to deliver important 
emergency information such as AMBER (missing children) alerts and 
emergency weather information targeted to a specific area. 
c. 
VITEMA has the ability to issue life safety alerts through EAS. 
d. 
VITEMA will conduct Required Monthly Tests (RMT) of the EAS on 
different days and at different times each month. 
                                                     
3 As of December 2019, the NOAA Weather alerts system in the Territory is nonoperational. NOAA has identified 
two (2) sites (1-St. Croix, 1-St. Thomas) to become broadcast stations that are part of their recovery plan. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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6. 
Joint Information Center (JIC)/Joint Information System (JIS) 
a. 
A JIC is a physical location where the coordination and 
dissemination of information for the public and media are 
managed. 
b. 
JICs may be established locally, regionally, or nationally depending 
on the size and magnitude of an incident. 
c. 
In the event of incidents requiring a coordinated federal response, 
JICs are established to coordinate federal, Territory, and private-
sector incident communications with the public. 
d. 
The JIC staff facilitates dissemination of accurate, consistent, 
accessible, and timely public information to numerous audiences. 
VIII. 
ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES 
A. 
General 
1. 
Emergency activities before, during, and after an emergency are the 
responsibility of all levels of government.  
2. 
The Territory government conducts normal business when the TEOC is 
activated, except that the TEOC reports directly to the Governor and 
coordinates all agency and department activities. 
3. 
Most departments and agencies within the Territory government have 
emergency functions to perform in addition to their normal duties. 
4. 
Each department and agency is responsible for developing and maintaining 
emergency management procedures in accordance with the direction and 
guidance given in this plan. 
5. 
Specific responsibilities are outlined in separate ESF and Hazard-specific 
annexes of this Plan. 
6. 
Responsibilities of certain organizations not part of the Territory 
government are also addressed in appropriate Annexes. 
B. 
Emergency Organization 
1. 
The VITEMA Director supervises all emergency operations at the EOC, 
coordinates emergency functions of other state agencies as dictated by the 
TEOP, and acts as the central point of contact for all assistance from outside 
the Territory. 
2. 
Organizational responsibility assignments (i.e., ESF Coordinating and 
Support Agencies) covered by this Plan are found in Appendix C to the 
Base 
Plan, 
Table 
C-1 
(Territory 
Emergency 
Support 
Functions, 
Responsibilities, and Assignments). 
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3. 
Agencies requesting outside assistance will coordinate the request through 
the VITEMA Director on behalf of the Governor. 
C. 
Roles and Responsibilities 
1. 
Territory Responsibilities.  
a. 
Develop a Territory-level emergency management organization 
involving all government agencies, private and volunteer 
organizations 
that 
have 
responsibilities 
in 
comprehensive 
emergency management within the U.S. Virgin Islands. 
b. 
Develop and implement a broad-based public awareness, 
education and preparedness program designed to reach U.S. Virgin 
Island residents and tourist. 
c. 
Implement an equitable emergency management program 
designed to meet the needs of individuals with disabilities and 
those with access and functional needs.  
d. 
Maintain the TMA and EMAC programs to provide and receive 
resources during time of need. 
e. 
Coordinate assistance from FEMA and all federal agencies in 
accordance with their program requirements. 
f. 
Establish direction and control of a Territory response and recovery 
organization based on ESFs, involving broad participation from 
Territorial government, private and voluntary relief organizations, 
and compatible with the federal response and recovery 
organization and concept of operations. 
g. 
Develop and implement programs or initiatives designed to avoid, 
reduce, and mitigate the effects of hazards through the 
development and enforcement of policies, standards, and 
regulations. 
h. 
Train Territorial agency personnel under each ESF on EMAC 
procedures and EOS to include identifying agency resources to 
sustain emergency operations, pre-scripting EMAC mission ready 
packages (MRP) with anticipated resource request, and listing 
agency resources available for interstate mutual aid missions. 
i. 
Ensure the overall TEOP is consistent with current Territory and 
federal guidance. 
j. 
Verify the TEOP’s accuracy and courses of action through exercise 
evaluation and ESF training. 
2. 
Territory Agencies Responsibilities 
a. 
Preparedness 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
(1) 
Appoint a Coordinator, and alternate, to support EMC as 
assigned in this Plan. 
(a) 
Emergency 
Coordinators 
will 
prepare 
and 
maintain assigned ESF and hazard-specific 
annexes of this Plan. 
(b) 
Emergency Coordinators will have the authority 
to commit agency resources and expedite 
program operations in the provision and 
coordination of emergency services. 
(2) 
Develop and maintain SOG/SOPs for the execution of 
primary functions in accordance with this plan. 
(3) 
Assign liaisons to staff the EOCs in accordance with 
requirements set forth by the VITEMA Director. 
(4) 
Maintain a 24-hour response capability to mobilize and 
use allocated and available resources to meet incident 
requirements. 
(5) 
Maintain current internal notification/recall rosters and 
communications systems. 
(6) 
Maintain a capability for the emergency procurement of 
resources required and not otherwise available. 
(7) 
Support EMAC by ensuring lead and support ESF 
agencies are trained on EMAC responsibilities, to include 
pre-identifying resources that may be allocated to 
support other states. 
(8) 
Inventory 
equipment 
and 
supplies 
and 
alleviate 
shortages. 
(9) 
Provide training as appropriate to personnel assigned to 
execute respective emergency functions in this Plan and 
the overall Emergency Management Program. 
(10) 
Annually participate in Territorial exercises to validate 
TEOP and supporting SOPs. 
(11) 
Review this plan annually and update assigned annexes 
and SOG/SOPs to meet current department policy and 
organization. 
b. 
Response 
(1) 
Staff EOC liaison. 
(2) 
Participate in situation briefings. 
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December 2024 
(3) 
Facilitate in the IAP development process. 
(4) 
Collect EEIs to maintain a common operating picture and 
produce SitReps. 
(5) 
Participate in damage assessment operations Identify 
and provide a Liaison Officer for each Agency EMAC 
Request to facilitate arrival and onward movement of 
EMAC support at the appropriate Staging Areas. 
(6) 
Assist federal representatives in providing emergency 
response or disaster assistance within the affected areas. 
c. 
Recovery 
(1) 
Transition recovery operations to VIODR. 
(2) 
Additional details are included in the U.S Virgin Islands Pre-
Disaster Recovery Plan, dated 2021. 
d. 
Mitigation 
(1) 
Facilitate disaster mitigation activities at ESF-specific 
facilities.  
(2) 
Additional details are included in the U.S Virgin Islands 
Mitigation Plan, dated 2021. 
3. 
VITEMA and VIODR Responsibilities 
a. 
Preparedness - VITEMA 
(1) 
Prepare for emergencies and disasters by conducting 
comprehensive assessments of the threats to the Territory 
and update the TEOP as required. 
(2) 
Establish procedures for the maintenance, distribution, and 
publication of this Plan. 
(3) 
Maintain a 24-hour Warning Point with ability to warn the 
public 24 hours a day. 
(4) 
Promote awareness, education, and preparedness programs 
designed to reach the whole community. 
(5) 
Assign Territory resources specifically to support individuals 
with disabilities and those with access and functional needs. 
(6) 
Identify and maintain resources available for response. 
(7) 
Establish and maintain memorandums of agreement (MOA) 
with Puerto Rico, federal agencies and other states. 
Encourage mutual aid agreements with private industry. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
(8) 
Provide technical and planning assistance to Territory 
agencies upon request. 
(9) 
Establish and conduct an exercise and training program to 
test and evaluate Territory plans to maintain a high standard 
of preparedness. 
(10) 
Establish an appropriate level of operational readiness. 
(11) 
Maintain the VITEMA Emergency Operations Center SOP for 
EOC activities. 
(12) 
Develop a SOG to relocate Territorial EOCs to an alternate 
location. 
(13) 
Test communications. 
(14) 
Conduct liaison activities with the federal government_ 
either directly with the FEMA Liaison Officer or the Region II 
Incident Management Assistance Team (IMAT). 
(15) 
Initiate 
actions 
deemed 
necessary 
for 
effective 
implementation of this plan. 
(16) 
Maintain surveillance of potentially threatening conditions 
to the Territory, and direct appropriate warning and 
response actions. 
b. 
Response - VITEMA 
(1) 
Activate and operate the EOC to a level appropriate to the 
threat when an actual or potential incident is first detected. 
See ESF 5 (Emergency Management) Annex for organization 
and duties. 
(2) 
Manage incident planning, operations, logistics, and 
finance. 
(3) 
Deploy or request liaison officers (LNO) as appropriate. 
(4) 
Advise the Governor, Territory agencies, and necessary 
federal agencies of severity and magnitude of the incident. 
(5) 
Manage the Territory's response effort through ICS 
protocols. 
(6) 
Coordinate execution of the various Annexes of this Plan 
with the emergency activities of Territory and federal 
government, NGOs, and private agencies. 
(7) 
Upon declaration of a State of Emergency, provide public 
information through ESF-15 (Public Information). Conduct 
public information briefings, news releases and coordinate 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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all emergency information generated by Territory agencies 
and departments. 
(8) 
Manage the damage assessment process. 
(9) 
Conduct a regular situation briefing to include reports from 
operating Territorial departments and agencies. 
(10) 
Facilitate the “Planning P” process to develop the Incident 
Action Plan (IAP) for each defined operational period. 
(11) 
Collect EEIs to maintain a common operating picture and 
produce SitReps. 
(12) 
Support ESF-specific operations in accordance with the IAP.  
(13) 
Initiate and coordinate federal assistance requests 
(a) 
Upon occurrence of an incident clearly beyond the 
capabilities and resources of the Territory, the 
Governor may request assistance from the federal 
government. 
(b) 
If the disaster is of Class I or II, VITEMA will alert the 
FEMA Region II Regional Operation Center (ROC) to 
request a FEMA Liaison or alert them the Governor 
may submit a formal request for federal assistance. 
(c) 
Upon request from the VITEMA Director, FEMA 
Region II may elect to use the Territory Liaison 
Officer or dispatch the Incident Management 
Assistance Team (IMAT) to the EOC to coordinate 
with VITEMA, and provide assistance in accordance 
with the NRF, as appropriate. 
(14) 
Document the resources and personnel used by responding 
State agencies from incident onset through the Recovery 
Phase. 
c. 
Recovery - VIODR 
(1) 
Provides executive oversight and coordination to all disaster 
recovery program funds and operations, thus ensuring 
compliance, efficiency, and effectiveness. 
(2) 
Maintain activities as detailed in the United States Virgin 
Islands Disaster Recovery Plan. 
d. 
Mitigation – VITEMA  
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December 2024 
(1) 
Maintain and review the U.S Virgin Islands Hazard Mitigation 
Resiliency Plan (HMRP) annually, and update and publish 
changes as necessary. 
(a) 
The HMRP serves as the Territory’s operational and 
programmatic guidance to promote cost-effective 
measures to reduce hazard impacts.  
(b) 
The HMRP encourages the development and 
implementation 
of 
mitigation 
strategies 
and 
establishes a comprehensive program to effectively 
and efficiently coordinate the Territory's services and 
resources to make the U.S. Virgin Islands more 
resilient to the human, environmental, and economic 
impacts of disasters. 
(c) 
Mitigation measures may be implemented prior to, 
during, or after an incident. 
(d) 
VITEMA conducts a comprehensive update of the 
HRMP every five (5) years for submission to FEMA. 
(2) 
Develop 
and 
implement 
HMRP-specified 
programs 
designed to avoid, reduce, and mitigate the effects of 
hazards through the development and enforcement of 
policies standards and regulations. 
(3) 
Promote mitigation efforts in the private sector by 
emphasizing business recovery plans and COOP Plans. 
4. 
Federal Responsibilities  
a. 
The NRF outlines Federal Emergency Management responsibilities.  
b. 
Preparedness  
(1) 
Develop plans and procedures detailing how the federal 
government will assist States and Territories in response to 
all levels of disasters.  
(2) 
Through FEMA, maintain a regionally based system to 
expedite the flow of information and response to 
emergencies.  
(a) 
The NRF provides guidance in preparation for 
federal assistance to the States and Territories. 
(b) 
To help ensure state/federal coordination, FEMA 
Region II's Regional Response Plan contains an 
Annex 
detailing 
the 
Territory’s 
Emergency 
Management System. This Annex refers to the TEOP 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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and unique operational activities the Territory 
implements when responding to disasters.  
c. 
Response  
(1) 
Provide federal assistance as directed by the President of the 
United States under the coordination of FEMA, and in 
accordance with federal emergency plans.  
(2) 
Identify and coordinate provision of assistance under other 
federal statutory authorities.  
(3) 
Supplement Territory-led efforts by providing federal 
assistance under governing secretarial or statutory 
authorities including the Defense Coordinating Element 
(DCE).  
(4) 
Establish direct liaison between the federal ESFs and their 
corresponding Territory ESFs.  
(a) 
Through the NRF, the federal government provides 
assistance through its 15 designated ESFs that mirror 
the Territory’s response organization. 
(5) 
Establish direct coordination with the Territory through a 
Federal Coordinating Officer (FCO). 
(a) 
In most disaster response situations, (i.e., situations 
covered by the Stafford Act), the President will 
appoint an FCO to coordinate overall federal 
incident management and assistance. 
(b) 
In situations not covered under the Stafford Act, the 
Secretary of Homeland Security may appoint a 
Principle Federal Officer (PFO) to coordinate overall 
Federal incident management and assistance. The 
Secretary of Homeland Security has currently 
retained that authority and is the PFO. 
(6) 
Assist in development, review, and process of the Governor’s 
request for a Presidential Disaster Declaration. 
(a) 
A Presidential Disaster Declaration makes available a 
series of federal disaster assistance programs to aid 
the Territory in its response and recovery efforts. 
(b) 
The basis for the declaration is the determination by 
the President that the disaster is of such severity and 
magnitude that response is beyond the Territory’s 
capabilities. 
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(7) 
To the extent that public law provides, channel federal 
assistance through and coordinated with the Governor or 
the designated authorized representative. 
(8) 
Provide emergency response on federally owned or 
controlled property. 
d. 
Recovery 
(1) 
Initiate the federal emergency recovery process under the 
National Disaster Recovery Framework (NDRF), which occurs 
when the President of the United States issues a Presidential 
Disaster Declaration. 
(2) 
Recovery Operations Framework.  
(a) 
The 
Emergency 
Management 
Program 
shall 
establish clear triggers for activating recovery 
operations 
based 
on 
damage 
assessment 
thresholds, 
resource 
availability, 
critical 
infrastructure 
status, 
economic 
impacts, 
and 
community needs assessments. These triggers shall 
guide the transition from response to recovery 
operations while ensuring continuity of essential 
services. 
(b) 
Recovery priorities shall be established in order of 
precedence, beginning with life safety and health, 
followed by essential services restoration, critical 
infrastructure repair, economic stabilization, housing 
restoration, and environmental remediation. These 
priorities shall guide resource allocation and 
operational planning throughout the recovery 
process. 
(c) 
The Program shall maintain detailed documentation 
of 
recovery 
resource 
requirements 
including 
personnel 
needs 
by 
function, 
equipment 
requirements, supply chain restoration needs, 
contractor support requirements, technical expertise 
needs, and financial resource projections. This 
documentation shall be reviewed and updated 
annually to reflect changes in capability and capacity. 
(3) 
Assist the Territory in conducting recovery operations in 
accordance with the United States Virgin Islands Disaster 
Recovery Plan. 
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December 2024 
(4) 
Reimburse response and recovery claims utilizing the 
authority of the FCO as authorized by the Stafford Act.  
(d) 
Upon declaration of a major disaster, federal 
assistance to disaster victims may become available 
from three program areas:  Individual Assistance, 
Public Assistance, and Mitigation. 
(e) 
Administration 
of 
these 
programs 
may 
be 
coordinated through a joint Federal/Territorial effort 
in a Joint Field Office (JFO). 
(f) 
Federal Individual and Public Assistance programs 
will be administered in accordance with the 
administrative plans submitted to FEMA post-event. 
e. 
Mitigation 
(1) 
Coordinate with the Hazard Mitigation Officer for Federal 
mitigation programs for the Territory/State. 
(2) 
Programs include the National Flood Insurance Program 
(NFIP), Hazard Mitigation Grant Program (HMGP), Building 
Resilient Infrastructure and Communities program (BRIC), 
and Flood Mitigation Assistance Grant Program (FMA). 
5. 
Whole of Community  
a. 
Reducing hazards in and around their residence by taking simple 
actions, such as raising utilities above flood level or taking in 
unanchored objects during high winds. 
b. 
Preparing an emergency supply kit and household emergency plan 
to take care of themselves until assistance arrives. This includes 
supplies for household pets and service animals.  
(1) 
See 
recommended 
disaster 
supplies 
list 
at  
http://vitema.vi.gov or http://www.ready.gov.  
c. 
Monitoring emergency communications carefully for critical 
information and direction on how residents and visitors can reduce 
their risk of injury, keep emergency routes open to response 
personnel, and reduce demands on landline and cellular 
communication. 
d. 
Volunteering with an established organization.  
(1) 
By volunteering with an established voluntary agency, 
individuals and households become part of the emergency 
management system and ensure their efforts are directed 
where needed most. 
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e. 
Enrolling in emergency response training courses such as basic first 
aid through the American Red Cross (ARC) or a more complex 
course through a local college to take initial response actions 
required to take care of themselves and their households, thus 
allowing first responders to focus on higher priority tasks that affect 
the entire community. 
6. 
Voluntary Organizations Active in Disaster (VOAD) 
a. 
Helps 
coordinate 
the 
Volunteer 
Management 
Plan 
and 
communicates within the Volunteer Donations Management Team 
(VDMT) to match volunteer’s skills, ability, and interests with the 
ongoing labor needs of all ESF operations. 
b. 
Collaborates among VOAD member organizations to accept 
unaffiliated volunteers who were successfully processed and found 
capable of contributing to the mission. 
c. 
Monitors the Intake Process for unaffiliated volunteers and 
monitors the overall management of volunteers during disaster. 
d. 
Collaborates and helps coordinate the Donations Management Plan 
to support all ESFs and monitors the flow and distribution through 
the equitable distribution system and reports interruptions or 
inconsistencies to the VDMT Coordinator. 
e. 
Helps volunteer and community organization representatives 
complete and submit their daily reports required to substantiate the 
eligible number of labor hours, supplies and materials contributed 
to the disaster effort. Ultimately, the Territorial Government may 
receive reimbursement from the FEMA Public Assistance Program. 
f. 
Communicates the need for volunteers with civic associations such 
as: 
(1) 
Rotary clubs and other civic groups, e.g. Lions, American 
Legion, Community Emergency Response Team (CERT), etc. 
(2) 
Animal-related organizations, e.g. Humane Society, Animal 
Shelter, etc. 
(3) 
Churches, synagogues, mosques, and interfaith groups. 
g. 
Develops, trains, and exercise unaffiliated volunteers and goods and 
materials support program. 
h. 
Establishes partnerships for coordination purposes with all 
community organizations active in disaster. 
i. 
Helps voluntary organizations develop emergency preparedness 
plans including a system for badging or identifying volunteers. 
U.S. Virgin Islands Territorial Emergency Operations Plan 
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December 2024 
j.
Encourages member organizations to inventory their facilities,
equipment, and personnel.
7.
Private Sector Responsibilities:
a.
Establishment of the Business Operations Center that will consist as
an integration point for private and public coordination for
sustained response and recovery operations.
(1)
The BEOC has been established, and will support the EOC
as needed through support planning, engagement and
integration of private sector partners.
(2)
A BEOC liaison will be located in the EOC upon activation
and will be the point of contact to the BEOC for all
requests and support needed.
(a)
Two BEOC liaisons have been identified and will
support each district in coordination with DLCA.
b.
Planning for the protection of employees, infrastructure, and
facilities.
c.
Planning for the protection of information and business continuity
of operations.
d.
Planning for responding to and recovering from incidents that
impact their own infrastructure and facilities.
e.
Working with VITEMA pre-incident to determine what assistance
and resources the private sector could provide the Territory.
(1)
Where appropriate, establishing mutual aid and assistance
agreements to provide specific response capabilities.
f.
Developing and exercising emergency plans before an incident
occurs.
g.
Providing assistance (including volunteers) to support emergency
management and public awareness during response and recovery
processes.
IX. CONTINUITY OF GOVERNMENT
A.
COG is a coordinated effort within the executive, legislative, or judicial branches is
needed to ensure that essential functions continue to be performed during and
after an incident.
B.
COG is intended to preserve the statutory and constitutional authority of elected
officials.
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December 2024 
C. 
COG and COOP planning give the Government of the Virgin Island (GVI) the 
capability to delegate authority, preserve records, maintain, and/or reconstitute its 
functions under threat or occurrence of any emergency that disrupts government 
operations and/or services. 
D. 
Each department, agency, division, or organization that has either primary or 
support responsibility for any ESF or Hazard-specific annex will maintain a line of 
succession of at least three persons by title. The line of succession for Territorial 
government and primary emergency support service agencies is documented in 
COG Plan.  
E. 
Development of U.S. Virgin Island’s COG capability involves a series of 
preparedness and planning activities designed to ensure that territorial 
government can perform essential functions under emergency conditions.  
F. 
Developing and maintaining the COOP and COG plans ensures the Territory's COG 
capability.  
G. 
All Emergency Support Function (ESF) Coordinating Agencies have developed and 
maintain Continuity of Operations (COOP) Plans that identify their essential 
functions and support Continuity of Government (COG). These plans ensure the 
Territory's ability to maintain critical operations across all ESFs during emergencies 
while preserving the line of governmental authority. 
 
 
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December 2024 
X. ADMINISTRATION, FINANCE, AND LOGISTICS 
A. 
General 
1. 
The logistics function is a collaboration of ESF 5 (Emergency Management) 
and ESF 7 (Resource Management). See ESF 5 and ESF 7 for procurement 
processes. 
a. 
VITEMA will staff and maintain the Logistics Section within ESF 5 
(Emergency Management).  
b. 
ESF 5 identifies all resources for use in a disaster situation, including 
those available through mutual aid 
c. 
Property and Procurement (P&P) will staff and maintain emergency 
procurement support within ESF 7 (Resource Management). 
d. 
If allowable, a territory agency can use its own procurement system; 
but all expenditures eventually must be reported to P&P and 
VITEMA, if for no other purpose than reimbursement.  
2. 
A large-scale emergency or disaster will place great demands on the 
resources of the Territory. 
3. 
Distribution of required resources may be made more difficult by the 
emergency itself. 
4. 
Volunteer organizations provide an excellent resource to support logistical 
and administrative disaster response and recovery. 
5. 
Coordination between Territory and district EOCs is essential for an 
effective logistical and administrative response. 
6. 
The Territorial agencies will conduct administrative procedures in 
accordance with existing laws, rules, and regulations. 
7. 
Emergency authority is set forth in Territory and federal laws and 
regulations. For more information, seethe Glossary, Authorities, and 
References. 
8. 
Each affected or participating Territory agency maintains records and 
reports that clearly identify disaster-related expenditures and obligations. 
This documentation is in accordance with VITEMA instructions and is 
mandated by federal statutes and regulations for reimbursement. 
9. 
Disaster-related expenditures and obligations of Territory agencies may be 
reimbursed under a number of federal programs. The federal government 
may authorize reimbursement of approved costs for work restoring certain 
public facilities after a major disaster declaration by the President or under 
the statutory authority of some federal agencies.  
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10. 
Agreements and understandings with other states, higher levels of 
government, and outside agencies are referenced to supplement Territory 
resources when necessary. These agreements must follow statutory 
procedures. EMAC is the most notable of them. Requests for this assistance 
proceed in accordance with negotiated mutual aid agreements and are 
formalized in writing whenever possible. VITEMA coordinates the 
negotiated agreements under the authority of EMAC. 
a. 
The U.S. Virgin Islands is a signatory of the EMAC that provides for 
mutual assistance (e.g., people, equipment, skills, etc.) between 
participating member States in managing any emergency or 
disaster that is duly declared by the Governor(s) of the affected 
state(s). 
b. 
The Director of VITEMA is the GVI’s Authorized Representative for 
EMAC. VITEMA will coordinate all EMAC deployments to and from 
the U.S. Virgin Islands. 
c. 
VITEMA will maintain access and skills to use the EMAC Operations 
System (EOS) to manage the request and offer process and 
generate the Resource Support Agreement (RSA). 
d. 
The assisting state will receive approval from its Governor before 
providing assistance. The U.S. Virgin Islands will reimburse the 
assisting State for the cost of response when requested. 
e. 
Procedures for implementing the Compact are found in the 
Emergency Management Assistance Compact: EMAC Operations 
Manual (December 2017) published by the National Emergency 
Management Association (NEMA). 
11. 
Discrimination on the grounds of race, color, age, sex, religion, nationality, 
physical impairment, or economic status is not allowed in the execution of 
activities outlined in this plan. This policy applies to all levels of 
government, volunteer organizations, and the private sector. 
12. 
Disaster assistance from the federal government is used in accordance with 
federal regulations and statutes. Requests for this assistance can come only 
from the Governor or the Governor’s designated successor. 
13. 
Procedures for obtaining resources, including donations and services from 
the private sector and volunteer organizations, are specified in ESF 7 
(Resource Management) and in appropriate organization SOGs. 
14. 
Whenever possible, procurement of necessary resources proceeds using 
normal requisition channels. 
15. 
During unusual situations, when constraints of normal requisition 
procurement procedures would threaten life and property or prolong 
U.S. Virgin Islands Territorial Emergency Operations Plan 
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December 2024 
needless suffering, usual procedures can be circumvented─but only under 
authorities set forth in territorial statutes. 
16.
Voluntary Organizations are organized and structured under ESF 6 (Mass
Care). The Territory maintains mutual aid agreements and/or memoranda
of understanding (MOU) of duties and areas of responsibility to be
performed during emergencies.
B.
Administration
1.
Documentation
a.
WebEOC will be the primary tool for the EOCs to document actions
taken during both the response and recovery phases of a disaster.
b.
In the event WebEOC is not available or operational the following
forms and logs at the minimum will be used.
(1)
ICS 203 – Organizational Assignment List
(2)
ICS 205 - Incident Communications Plan
(3)
ICS 213 – General Messaging
(4)
ICS 214 – Activity Log
(5)
ICS 215 – Operational Planning Worksheet
2.
After Action Reports
a.
Whenever an EOC is activated, there needs to be a process for
evaluating EOC and field operations. This process helps to identify
areas needing improvement, including personnel, operations,
communications, facilities and equipment, and training.
b.
Thoughts, ideas, and recommendations will be solicited from
response participants to assist in identifying areas for improvement
or best practices that should be memorialized to provide faster and
more effective service to the citizens of the Territory during
emergency operations.
c.
Primary ESF agencies will collect input from their Support Agencies
and submit a compilation of information gathered.
(1)
Data from hotwashes, surveys or other methods will be
provided to the VITEMA Planning and Preparedness
Division.
(2)
VITEMA will analyze, collate, and prepare the AAR for the
Director of VITEMA.
d.
Observations, 
areas 
of 
improvement, 
strengths, 
and
recommendations should be compiled into a Homeland Security
Exercise and Evaluation Program (HSEEP)-compliant AAR.
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e. 
VITEMA will manage the corrective action process and monitoring. 
3. 
Continuous Improvement Program Policy  
a. 
Annex A of the Virgin Islands Integrated Preparedness Plan (IPP) 
2024-2026 outlines the Continuous Improvement Program (CIP). 
This policy establishes a framework to ensure consistent 
improvement in emergency management activities before, during, 
and after exercises or real-world incidents. 
a. Purpose: Aligns with FEMA Continuous Improvement 
Program 
guidelines 
and 
Emergency 
Management 
Accreditation Program (EMAP) standards. 
b. Scope: Applicable to all VITEMA staff and territorial 
emergency management agencies. 
b. 
The Planning & Preparedness Division manages the CIP by 
identifying and tracking corrective actions based on After-Action 
Reports (AARs). It assigns lead agencies to implement specific 
actions and monitors progress through quarterly Continuous 
Improvement Working Group (CIWG) meetings. Data collection is 
facilitated using the CIP Collection Form 1 and the CIP Capability & 
Gap Analysis Review.  
c. 
Each corrective action is tracked using a standardized system that 
includes a description of the action, the responsible agency, 
deadlines, status updates, and verification of effectiveness. Lead 
agencies are tasked with developing actionable steps and providing 
regular progress updates.  
d. 
CIWG meetings, held quarterly, review and update corrective 
actions, address challenges, and assess the effectiveness of the 
implemented changes. They also identify new areas for 
improvement, evaluate the overall effectiveness of the CIP process, 
and incorporate lessons learned into recommendations for future 
updates. 
e. 
To ensure continuous improvement, VITEMA conducts annual 
evaluations of the territory's emergency management capabilities. 
These evaluations involve self-assessments, peer reviews, and 
external audits, with results informing budget allocation, resource 
planning, and improvement efforts. The evaluation process adheres 
to FEMA guidelines and industry best practices. 
f. 
The Continuous Improvement Cycle integrates planning, training, 
and exercises to embed a culture of ongoing improvement within 
the emergency management framework. The policy is reviewed and 
updated annually or as necessary to adapt to evolving needs and 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
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December 2024 
priorities. Through this structured approach, the CIP enhances the 
Virgin Islands' preparedness, response, mitigation, and recovery 
capabilities. 
C. 
Finance 
1. 
The U.S. Virgin Islands Public Assistance State Administrative Plan outlines 
programmatic and financial operational processes for the Territory. 
2. 
Territory 
a. 
Agencies will fund emergency operations from existing agency 
accounts. 
b. 
If the Governor signs a State of Emergency Executive Order, it may 
include an authorization for reimbursement of emergency 
expenditures from the Disaster Contingency Fund maintained by 
the Commissioner of Finance. 
c. 
If the emergency results in a Presidential Declaration, federal funds 
administered by FEMA will become available. 
d. 
The Territory is normally required to provide between 10% and 25% 
of all expenditures. 
e. 
Agencies will conduct and account for expenditures of Territorial 
funds for emergency operations in accordance with USVI laws and 
regulations and their records are subject to audit. 
f. 
Using emergency powers, the Governor may mobilize all available 
resources of the Territorial government as necessary to cope with 
the emergency. 
g. 
Territorial agencies/departments are responsible for the collection, 
reporting and maintenance of records of obligation and 
expenditures incurred during response to an incident. These records 
will serve as data in assessing the need and preparation of requests 
for federal assistance. 
3. 
Federal 
a. 
Federal funds made available to the Territory pursuant to an 
emergency or disaster program will be, to the extent provided by 
law, channeled through the Governor or designated representative. 
b. 
Use of Federal funds is subject to audit and verification by Territorial 
and federal auditors. 
c. 
Territorial agencies and departments will establish systems to report 
on and account for any public funds used for emergency or disaster 
purposes. 
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December 2024 
4. 
For FEMA Public Assistance (PA) reimbursements, the Department of 
Finance works with VITEMA to collect relevant documentation including ICS 
214 (Activity Log) forms, concise check history reports, invoices, receipts, 
and work logs in order to compile the FEMA Project Worksheet (PW).  
a. 
All of the Territories documentation procedures follow the most 
current FEMA guidance to ensure maximum reimbursement of 
Territory expenditures. 
b. 
Extreme care and attention to detail must be taken throughout the 
emergency response period to maintain logs and formal records, 
and file copies of all expenditures (including personnel time sheets) 
in order to provide clear and reasonable accountability and 
justification for future reimbursement requests.  
(1) 
Reimbursement is not an automatic “given,” so, as much 
deliberative prudence as time and circumstances allow 
should be used. 
c. 
After the issuance of a local disaster declaration, mutual aid 
assistance shall be 
documented according to 
the FEMA 
reimbursement documentation process in anticipation of Territory 
and federal disaster declarations. 
d. 
All records relating to the allocation and disbursement of funds 
pertaining to activities and elements covered in this plan must be 
maintained, as applicable, in compliance with: 
(1) 
The Code of Federal Regulations–Title 44 Emergency 
Management and Assistance (CFR 44); relevant Circulars and 
Federal Statutes, in a manner consistent with provisions of 
the Federal Stafford Act. 
(2) 
Department of Finance policies and procedures. 
(3) 
The PA Policy Digest, in which FEMA provides policies and 
procedures for the Public Assistance Program. 
 
D. 
Program Budget and Financial Administration 
1. 
General 
a. VITEMA will maintain a dedicated program budget that: 
(1) 
Documents all program funding sources 
(2) 
Identifies funding for all program components 
(3) 
Defines financial responsibilities for all program elements 
4. 
Financial Procedures will include:  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
43 
December 2024 
a. Tracking of program expenditures 
b. Annual Budget planning process 
c. Fiscal controls and oversight  
d. Documentation of financial resources allocated to program 
elements 
5. 
The VITEMA Director will review the program budget annually with VITEMA 
Senior Team and Advisory Committee if necessary.  
E. 
Logistics 
6. 
General 
a. 
Initial priority for the distribution of supplies is to immediately 
sustain life:  food, water, and medication. 
b. 
Additional requirements will be identified, and resources provided 
as soon as possible, through EOCs. 
7. 
Resource Limitations  
a. 
Ability to house, feed, and support responders from outside of the 
Territory. 
b. 
Trained and equipped hazardous material response teams. 
c. 
Trained and equipped search and rescue teams. 
d. 
Trained and equipped water rescue teams. 
8. 
Resource Management Systems 
a. Resource Typing  
(1) All resources will be typed according to NIMS standards 
(2) Resource Typing definitions maintained in database 
b. Resource Tracking 
(3) Real-time inventory system for critical resources 
(4) Deployment and demobilization tracking  
(5) Maintenance and testing records  
c. Resource Ordering  
(6) Standard requisition procedures  
(7) Emergency Procurement protocols  
(8) Mutual Aid request process 
9. 
Resource Mitigation efforts 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
44 
December 2024 
a. 
The shortfall of search and rescue, water rescue, and hazardous 
materials (hazmat) teams are identified on the Territory’s THIRA and 
State Preparedness Report (SPR). 
b. 
The Territory continues to pursue opportunities to send personnel 
to hazmat, search and rescue, and water rescue training. 
10. 
Pre-Existing Emergency Contracts 
a. 
WAPA maintains contracts for emergency line crews and equipment 
for the restoration of electrical transmission lines and distribution 
systems. 
b. 
Department of Property and Procurement maintain emergency 
contracts for the following products and services. 
(9) 
Bottled Water 
(10) 
Generator Maintenance 
(11) 
Road Clearance 
(12) 
Roof Repair 
(13) 
Debris Removal 
11. 
All emergency contracts should be renewed no later than June 1st annually. 
12. 
The Territory of the U.S. Virgin Islands maintains a standalone Resource 
Management Plan annex that provides comprehensive guidance, 
procedures, and protocols for resource management activities. This plan 
details specific requirements, systems, and processes that Territory 
agencies must follow to fulfill their resource management responsibilities 
in compliance with EMAP standards. 
F. 
Exercise Program Enhancements  
13. 
Exercise Program Documentation Standards  
a. 
The Emergency Management Program shall maintain comprehensive 
documentation for all exercises. Required documentation includes 
the Exercise Plan, Controller/Evaluator Handbook, Master Scenario 
Events List, Exercise Evaluation Guides, After Action Report, and 
Improvement Plan. The Exercise Plan shall be completed 60 days prior 
to the exercise, with the Controller Handbook finalized 30 days prior. 
The After Action Report shall be completed within 30 days following 
the exercise, and the Improvement Plan shall be finalized within 90 
days post-exercise following the Continuous Improvement Program 
Policy. 
b. 
The Exercise Program utilizes a corrective action tracking system and 
CIP Policy that documents all identified issues, assigns responsibility 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
45 
December 2024 
for 
corrections, 
establishes 
completion 
timelines, 
tracks 
implementation status, and validates corrections through subsequent 
testing. Each corrective action shall be monitored until completion 
and closure is verified through appropriate testing or demonstration. 
 
XI. ANNEX DEVELOPMENT AND MAINTENANCE  
A. 
The VITEMA Deputy Director for Planning and Preparedness is responsible for 
ensuring the TEOP is maintained and updated.  
B. 
Virgin Islands departments and agencies identified as ESF Coordinating Agencies 
in the TEOP are responsible for maintaining their respective ESF Annex in 
coordination with VITEMA and their ESF team. 
C. 
The process used to develop and maintain the TEOP will be based on nationally 
recognized emergency planning principles and best practices. 
D. 
The TEOP is designed to be a flexible, dynamic document subject to revision, as 
appropriate. 
E. 
Revisions may result from a variety of causes such as: 
a. 
New procedures, policies, or technologies. 
b. 
Lessons learned from an actual event or exercise. 
c. 
Feedback during training or case study review. 
d. 
To accommodate new organizations, organizational structures, or systems. 
F. 
Major revisions are considered revisions which significantly alter or establish new 
policy and will be approved by the VITEMA Director and Emergency Management 
Council (EMC). 
G. 
The VITEMA Deputy Director for Planning and Preparedness will coordinate a 
review of the TEOP every two years and incorporate suggestions and changes from 
the EMC as needed. 
H. 
The TEOP review will be conducted in accordance with Comprehensive 
Preparedness Guide (CPG) 101 v2, Developing and Maintaining Emergency 
Operations Plans. 
I. 
New versions of the TEOP will be disseminated to all stakeholders and the current 
version will always be posted on VITEMA’s public website which is vitema.vi.gov. 
J. 
The VITEMA Deputy Director of Planning and Preparedness in coordination with 
the VITEMA Director will regularly conduct training and exercises to ensure that 
VITEMA staff, key stakeholders, and partners are familiar with the TEOP. 
K. 
Exercise records, Continous Improvement Plan(s) and AARs will be developed and 
kept on file following each exercise for a period of 7 years: 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
46 
December 2024 
a. 
To be used for future improvements and updates to the TEOP. 
b. 
To help improve processes and procedures. 
L. 
Training Program Requirements  
a. 
 VITEMA will maintain a comprehensive training program that includes:  
i. Training needs assessment updated annually 
ii. Required training by position/role  
iii. Training schedule and delivery methods  
iv. Documentation procedures  
b. 
Required Training Elements:  
i. EOC operations  
ii. ICS/NIMS training per federal guidelines   
iii. ESF-specific training  
iv. Exercise participation  
c. 
Training Records:  
i.  Individual training transcripts maintained  
ii. Course completion documentation  
iii. Annual training compliance reports 
Training Records System 
The Emergency Management Program shall maintain a centralized electronic 
database system for all training records. This system will document course 
completion dates, certification expiration dates, instructor qualifications, 
performance evaluations, and continuing education credits for all personnel. All 
training records shall be retained for a minimum period of five years from the date 
of training completion. The Training Officer shall conduct quarterly reviews of the 
database to ensure compliance with documentation requirements. 
Position-specific training requirements shall be clearly documented within the 
training system. The documentation shall outline entry-level requirements, 
advanced and specialized training needs, leadership development pathways, and 
refresher training schedules for each position type within the emergency 
management organization. These requirements shall be mapped directly to job 
responsibilities and reviewed annually for updates based on evolving program 
needs. 
The Emergency Management Program shall establish and track quantitative 
metrics for assessing training effectiveness. These metrics shall include course 
completion rates, test scores and pass rates, student evaluations, and instructor 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
47 
December 2024 
performance assessments. The Training Officer shall conduct quarterly analysis of 
these metrics and present findings to the Emergency Management Council during 
the annual program review. 
(a) VITEMA maintains a comprehensive training program anchored by a Territory-
wide Training Matrix. This matrix system: 
(i) Tracks all training by personnel tenure levels 
(ii) Categorizes training requirements according to FEMA Community Lifelines 
(iii) Consolidates training data into Key Performance Indicator (KPI) reports 
(iv) Provides real-time training status across all emergency management 
functions 
(v) Documents training completions, certifications, and requirements 
(b)  The Training Matrix serves as the Territory's centralized training records system 
and supports:  
(i) Training needs assessment updated annually 
(ii) Required training by position/role 
(iii) Training schedule and delivery methods 
(iv) Compliance monitoring and reporting  
(v) Performance tracking and analysis 
(c) The KPI reports generated from the Training Matrix provide leadership with 
actionable metrics on: 
(i) Training completion rates 
(ii) Certification status 
(iii) Capability gaps 
(iv) Program effectiveness 
(v) Resource allocation needs 
The Territory has adopted the National Qualification System (NQS) to ensure consistent 
qualification, certification, and credentialing standards for emergency response 
personnel. This system establishes position-specific qualification requirements based on 
the FEMA National Incident Management System (NIMS) Job Titles/Position Qualifications 
and Position Task Books (PTBs). Through integration with the Territory's Training Matrix, 
the NQS provides a standardized approach to qualifying and credentialing incident 
management and support personnel, ensuring deployment readiness across all ESFs and 
response functions. See Appendix H to this Base Plan for detailed NQS implementation 
procedures, including position qualifications, certification processes, and integration with 
the Territory's Training Matrix system. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
48 
December 2024 
M. 
Resource Management Training Program: This will support the resource 
management training program by establishing clear training requirements, 
implementing an exercise schedule to test distribution systems, and incorporating 
performance metrics and evaluation criteria to ensure effectiveness and continuous 
improvement.  
a. 
 Required Training   
i. NIMS/ICS Resource Management courses 
ii. WebEOC resource tracking  
iii. Point of Distribution operations  
iv. Procurement procedures  
b. 
Exercise Requirements:  
i. Quarterly resource distribution drills  
ii. Annual full-scale POD Exercise  
iii. Semi-annual inventory management tests 
c. 
Evaluation Criteria:  
i.  Resource request processing times  
ii. Distribution accuracy rates 
iii. Documentation compliance  
The Virgin Islands Territorial Emergency Operations Plan (TEOP) is a living document maintained 
by the VITEMA Deputy Director for Planning and Preparedness, with support from United States 
Virgin Islands’ departments and agencies. It is revised based on new policies, lessons learned, or 
feedback from exercises and training. Major changes are approved by the VITEMA Director and 
the Emergency Management Council, with a full review conducted biennially following FEMA 
guidelines. Updated versions are distributed to stakeholders and posted online. All annexes and 
supporting appendices are designed to complement and support the TEOP, ensuring a 
comprehensive framework for emergency management. To ensure effectiveness, the TEOP is 
supported by a comprehensive training program, including EOC operations, ICS/NIMS guidelines, 
and ESF-specific roles, alongside a resource management program focusing on training, exercises, 
and performance evaluations to maintain preparedness and improve processes. 
 
 
 
 
XII. AUTHORITIES AND REFERENCES 
A. 
Territorial 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Base Plan 
49 
December 2024 
1. 
V. I. Code, Title 23, the VITEMA Act (5233) of 1986 VI Territorial Emergency 
Management Act of 2009 
2. 
VI Emergency Management Act of 2009 
3. 
Executive Order #487-2019, 17 June 2019 
4. 
Territorial Hazard Mitigation Plan, 2019  
5. 
United States Virgin Islands Disaster Recovery Plan, 2020 
B. 
Federal 
1. 
Posse Comitatus Act of 1878 (18 U.S.C. § 1385) 
2. 
Robert T. Stafford Disaster Relief and Emergency Assistance Act FEMA 
Comprehensive Planning Guide (CPG) 101 Version 2 
3. 
National Incident Management System (NIMS) Homeland Security Act of 
2001 
4. 
Homeland Security Presidential Directive-5 (HSPD-5), Management of 
Domestic Incidents, February 28, 2003 
5. 
Homeland Security Presidential Directive-8 (HSPD – 8), National 
Preparedness, December 17, 2003 
6. 
Post Katrina Emergency Management Reform Act of 2006, Public Law 109-
295 Pet Evacuation and Transportation Standards Act of 2006, Public Law 
109-308 
7. 
Insurrection Act of 2006, as amended, (10 U.S.C §§ 251-255) 
8. 
The Code of Federal Regulations, Title 44, Chapter 1, Federal Emergency 
Management Agency, October 1, 2007 
9. 
National Continuity Policy, May 4, 2007 
10. 
National Infrastructure Protection Plan (NIPP), 2013 
11. 
FEMA RII Hurricane Annex for Puerto Rice & U.S. Virgin Islands, October 20, 
2014 
12. 
National Protection Framework, 2nd Ed, June 2016 National Prevention 
Framework, 2nd Ed, June 2016 
13. 
National Mitigation Framework, 2nd Ed, June 2016 
14. 
FEMA Comprehensive Preparedness Guide (CPG) 201, 3rd Edition, 2018 
15. 
National Response Framework (NRF) 4th Ed, October 2019 
C. 
Other 
1. 
Emergency Management Assistance Compact Operations Manual, Oct 
2013 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-1 
April 2022 
Appendix A to the Base Plan 
Hazard and Threat Analysis Summary 
I. 
PAST DECLARED DISASTERS 
A. 
The USVI has undergone several declared disasters. Table A-1 lists these by decade. 
Table A-1: USVI Declared Disasters 
Decade 
Disaster(s) 
2024 
Tropical Storm Ernesto (FEMA-4841-DR-VI) 
2023 
 
2022 
Operation Safe Water(EM-3584-VI) 
2021 
 
2020 
Tropical Storm Isaias (EM-3531-VI), 2020 
COVID-19 (EM-3433), 2020 
2010 
Hurricane Dorian (EM-3418), 2019 
Hurricane Maria (DR-4340; EM-3390), 2017 
Hurricane Irma (DR-4335; EM-3883), 2017 
Severe Storms, Flooding, Rockslides and Mudslides associated with Tropical Storm 
Tomas (DR-1949), 2010 
Severe Storms, Flooding, Mudslides and Landslides associated with Tropical Storm 
Otto (DR-1948), 2010 
Hurricane Earl (DR-1939); 2010 
2000 
Hurricane Omar (DR-1807), 2008 
Tropical Storm Jeanne (DR-1567), 2004 
Flooding Rains (DR-1503), 2003 
1990 
Hurricane Lenny (DR-1309; EM-3152), 1999 
Hurricane Georges (DR-1248; EM-3129), 1998 
Hurricane Bertha (DR-1126), 1996 
Hurricane Marilyn (DR-1067), 1995 
1980 
Hurricane Hugo (DR-841), 1989 
Tropical Storm Klaus (DR-729), 1984 
Severe Storms, Flooding, Mudslides (DR-681), 1983 
1970 
Hurricane David, Tropical Storm Frederick (DR-602), 1979 
Drought (EM-3042), 1977 
Severe Storms, Landslides, Flooding (DR-451), 1974 
Drought, Livestock Losses (EM-3001), 1974 
Heavy Rains, Flooding (DR-298), 1970 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-2 
April 2022 
Decade 
Disaster(s) 
1960 
Extreme Drought Conditions (DR-171), 1964 
 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-3 
April 2022 
II. 
THREATS AND HAZARDS OF CONCERN 
A. 
The Territorial Hazard Mitigation Plan identifies the following natural hazards that 
may require activation of the Pre Disaster Recovery Planning (PDRP): 
1. 
Drought 
2. 
Earthquake 
3. 
Coastal/Riverine Flooding and Erosion  
4. 
Hurricane/Tropical Storm 
5. 
Rain-induced Landslide  
6. 
Tornado 
7. 
Tsunami 
8. 
Wildfire. 
B. 
Additional threats and hazards that may necessitate activation of the PDRP include: 
1. 
Cyber-Security Breach  
2. 
Hazardous Materials 
3. 
Pandemic/Infectious Disease Outbreak  
4. 
Transportation  
5. 
Sargassum  
6. 
Climate Change-rising sea levels  
7. 
Extreme Heat 
III. 
HAZARD AND THREAT ANALYSIS 
A. 
The Territory conducted planning analysis based on a hazard’s relative frequency, 
potential severity, and historic information available. Data assessed post Hurricane 
Irma and Maria were also taken into consideration to allow a comprehensive 
assessment to be conducted which will assist with the analysis of identified hazards.  
B. 
The Analysis identified hazards as posing a threat both immediate (e.g., 
earthquake, hurricane, etc.) and long-term (e.g., earthquake, tsunami, etc.). These 
hazards have the potential to disrupt day-to-day activities, cause extensive 
property damage, and create mass casualties. Table A-2: Hazard and Threat 
Analysis Summary, identifies the hazards and associated challenges in relation to 
the 32 Core Capabilities identified in the National Response Framework (NRF).  
C. 
The Territory's hazard analysis has been expanded to include emerging threats 
such as Sargassum blooms, extreme heat, and sea-level rise, reflecting the growing 
impact of climate change on the region. These hazards present unique challenges: 
Sargassum blooms disrupt water supply systems and marine ecosystems, extreme 
heat endangers public health and increases energy demands, and rising sea levels 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-4 
April 2022 
exacerbate coastal flooding and threaten critical infrastructure. By integrating 
these new hazards into the planning framework, the Territory enhances its ability 
to address both immediate and long-term risks, ensuring a comprehensive 
approach to resilience and preparedness. 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-5 
April 2022 
Table A-2: USVI Hazard and Threat Analysis Summary 
Active 
Shooter  
Hazmat 
Release-
Chemical  
Cyber Attack  
Hurricane / 
Tropical Storm/ 
Flooding  
Earthquake/ 
Tsunami 
Pandemic-
Human  
Presents the greatest challenge to: 
Interdiction 
and 
Disruption 
Access 
Control and 
Identify 
Verification 
Intelligence 
and 
Information 
Sharing 
Public 
Information and 
Warning / STJ 
Communication 
Operational 
Coordination 
Virus/Identification 
Diseases 
Screening, 
Search and 
Detection 
Physical 
Protective 
Measures 
Forensics and 
Attribution 
Planning 
Risk Mgmt. for 
Protection 
Programs and 
Activities 
Screening, Search 
and Detection 
On-scene 
Security, 
Protection, 
and Law 
Enforcement 
Long-term 
Vulnerability 
Reduction 
Cybersecurity 
Supply Chain 
Integrity and 
Security / Local 
Federal FEMA 
Risk and 
Disaster 
Resilience 
Assessment 
Physical Protective 
Measures 
 
Environmental 
Response/ 
Health & 
Safety 
 
 
Critical 
Transportation 
Supply Chain 
Integrity & 
Security 
 
Situational 
Assessment 
 
Logistics and 
Supply Chain 
Management 
Fatality 
Management 
Services 
Logistics and 
Supply Chain 
Management 
 
Health and 
Social Services 
 
Mass Care 
Services 
Fire 
Management 
and 
Suppression 
Public Health, 
Healthcare and 
EMS 
 
 
 
Operational 
Communications 
Mass Search 
and Rescue 
Operations 
Health and Social 
Services 
 
 
 
Economic 
Recovery 
Infrastructure 
Systems 
 
 
 
 
Housing/Critical 
Transportation/ 
Infrastructure 
Systems 
Natural and 
Cultural 
Resources 
 
      Reference: FEMA Comprehensive Planning Guide (CPG) 201: THIRA/SPR – 3rd Edition 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-6 
April 2022 
IV. 
DETAILS ON POSSIBLE NATURAL AND MAN-MADE HAZARDS CONFRONTING THE 
U.S. VIRGIN ISLANDS 
A. 
Active Shooter  
1. 
In recent years Active Shooter scenarios have become very prevalent 
throughout the entire world which has caused communities to be more 
vigilant, prepared and on constant alert. Although the Territory has 
encountered situations where there were active shooters, the effects were 
not as severe as other situations. This hazard has caused the Territory to 
offer active shooter trainings which reinforce the three actions of Run, Hide, 
and Fight. The trainings have also been offered for Law Enforcement 
personal based on Advanced Law Enforcement Rapid Response Training.  
Understanding the importance of education and outreach to the 
community has caused VITEMA to work aggressively with other agencies 
to maximize the information and trainings available. 
B. 
Earthquake 
1. 
The first recorded incident directly affecting the U.S. Virgin Islands was in 
1777, when a shock with an estimated intensity on the Modified Mercalli 
scale of IV-V. Table A-3 provides an earthquake magnitude/intensity 
comparison reported on St. Thomas. 
2. 
Over the 200 years, as many as 170 individual events were recorded but 
none have been of great consequence since 1867 when an earthquake 
estimated at MMI VIII on St. Thomas and VII-VIII on St. Croix as recorded. 
Since that time there have been no major events with the highest estimated 
intensity measured at MMI IV-V. 
3. 
Due to the moderate nature of these events and their non-destructive 
nature there has been no federal disaster declaration for any of these 
occurrences. 
4. 
St. Thomas and St. John have hillsides that are susceptible to earthquake 
induced land sliding as a result of increased hillside development; removal 
of slope vegetation; and steeper man-made slopes. 
5. 
Other critical areas include the waterfront area of Charlotte Amalie, 
Christiansted, and Frederiksted that are built upon alluvial soils and various 
landfill making the areas prone to liquefaction. 
6. 
The updated information from the National Risk Index, completed in 2024, 
will be available in 2025 and will serve to enhance earthquake response 
activities and outreach efforts. 
 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-7 
April 2022 
Table A-3 Earthquake Magnitude / Intensity Comparison:  
 
PGA 
(in %g) 
Magnitude 
(Richter) 
Intensity 
(MMI) 
Description (MMI) 
<0.17 
1.0 - 3.0 
I 
I. Not felt except by a very few under especially favorable 
conditions. 
0.17 - 1.4 
3.0 - 3.9 
II - Ill 
II. Felt only by a few persons at rest, especially on upper floors 
of buildings  
III. Felt quite noticeably by persons indoors, especially on upper 
floors of buildings. Many people do not recognize it as an 
earthquake. Standing motor cars may rock lightly. Vibrations 
similar to the passing of a truck. 
1.4 - 9.2 
4.0 - 4.9 
IV - V 
IV. Felt indoors by many, outdoors by few during the day. At 
night, some awakened. Dishes, windows, doors disturbed; 
walls make cracking sound. Sensation like heavy ruck striking 
building. Standing motor cars rock noticeably. 
V. Felt by nearly everyone; many awakened. Some dishes, 
windows broken. Unstable objects overturned. Pendulum 
clocks may stop. 
9.2 – 3.4 
5.0 - 5.9 
VI - VII 
VI. Felt by all, many frightened. Some heavy furniture moved; a 
few instances of plaster. Damage slight. 
VII. Damage negligible in buildings of good design and 
construction; slight to moderate in well-built ordinary 
structures; considerable damage in poorly built or badly 
designed structures.  
34 - 124 
6.0 - 6.9 
VIII - IX 
VIII. Damage slight in specially designed structures; 
considerable damage in ordinary substantial buildings with 
partial collapse. Damage great in poorly built structures. Fall 
of columns, monuments, walls. Heavy furniture overturned. 
IX. Damage considerable in specially designed structures; well-
designed frame structures thrown out of alignment. Damage 
great insubstantial buildings, with partial collapse. Buildings 
shifted off foundations. 
>124 
7.0 > 
X to XII 
X. Some well-built wooden structures destroyed; most masonry 
and frame structures destroyed with foundations. Rails bent. 
XI. Few, if any (masonry) structures remain standing. Rails bent 
greatly. 
XII. Damage total. Lines of sight and level are distorted. Objects 
thrown into the air. 
Source: Wald, D., et al., "Relationship between Peak Ground Acceleration, Peak Ground Motion and 
Modified Mercalli Intensity in California.” 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-8 
April 2022 
C. 
Tsunami 
1. 
The most recent tsunamis affecting the United States Virgin Islands (USVI) 
and Puerto Rico have occurred in 1867, 1918 and 1946. 
2. 
Sources are defined as local (less than 25 minutes’ travel time), regional (25 
minutes to 2 hours) or distant (more than 2 hours travel time). 
3. 
Rough estimates of arrival times for tsunamis from potential source areas 
are as follows: 
a. 
Slope Slumping on Puerto Rico Northeast Slopes or in the Puerto 
Rico Trench – approximately 30 minutes for St. Thomas and St. John; 
about 40 minutes for St. Croix; 
b. 
Anegada Passage – approximately 15 minutes for St. Thomas, a little 
less for St. John, 20–25 minutes for St. Croix; 
c. 
Northwest Puerto Rico or Eastern Hispaniola Coasts – possibly 1 
hour for St. Thomas, a little more for St. John, and approximately 
ten minutes more for St. Croix; 
d. 
Slope Collapse North Coast of Dominica – maybe 40 minutes for St. 
Croix, about 50 minutes for St. Thomas and St. John; 
e. 
Kick-‘em-Jenny Submarine Volcano– 80 minutes for St. Croix, 95–
100 minutes for St. Thomas and/or St. John; 
f. 
Lisbon, Portugal or Canary Islands – approximately 7 hours. 
4. 
It is very likely that a tsunami would eventually affect all coasts of the 
Territory no matter where the source area was located. 
D. 
Hurricanes and Tropical Storms 
1. 
Densely populated coastal areas, especially during peak tourist seasons, 
coupled with the generally low coastal elevations, significantly increase the 
Territory’s vulnerability. 
2. 
The Atlantic Basin hurricane season officially extends from June 1 to 
November 30 while over the last 117 years, the U.S. Virgin Islands have 
experienced hurricanes no earlier than July 7 and as late as November 23. 
3. 
Peak hurricane activity occurs in September with half of the number of 
average annual storms occurring during that month. 
4. 
Due to the relatively small geographical size of the Territory, any storm 
passing within a radius of 100 miles has the potential for causing damage. 
5. 
Essentially there are no areas of the U.S. Virgin Islands that are free from 
hurricane force winds. 
6. 
According to the 2014 USVI Territorial Hazard Mitigation Plan, there is an 
estimated 5% chance of experiencing a Category 3 hurricane each year. 
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix A 
A-9
April 2022 
September 2017 proved that percentage to no longer be factual being that 
the Territory was plagued with two Category 5 Hurricanes within two weeks 
of each other which affected the Territory in a devastating capacity.  
7.
Recent hurricanes that have impacted the Territory:
a.
Hurricane Klaus (October 1984): caused moderate damage to roads
and bridges, heavily damaged the Frederiksted Pier in St. Croix but
caused significant flooding due to heavy rains that accompanied
the storm.
b.
Hurricane Hugo (September 1989): passed directly over St. Croix as
a Category 5 hurricane causing catastrophic damages. St. Thomas
received substantial damage to public and private facilities.
c.
Hurricane Marilyn (September 1995): resulted in 10 deaths and left
thousands homeless damaging or destroying nearly all 12,000
homes on St. Thomas and 5,000 on St. Croix. The damages to the
WAPA’s electric distribution system were estimated at $44 million.
The storm also destroyed warehoused food stocks and damaged
the only hospital on St. Thomas.
d.
Hurricane Lenny (November 1999): tracked across the Caribbean
from the west making landfall on the western coast of the St. Croix
causing extensive storm surge damage.
e.
Hurricane Omar (October 2008): St. Croix received a glancing blow
from Omar causing knocked down trees, flooding, and minor
mudslides.
f.
Hurricane Irma (September 2017): Category 5 hurricane which
caused St. Thomas to receive at least 12 inches of rain, which caused
large amounts of flooding and evacuation attempts to safer
locations. There was a widespread structural damage to the critical
infrastructure. Three deaths were attributed to Irma on the island.
On nearby Saint Croix, there were communication issues and some
damage to the infrastructure.  Saint John lost access to ferry and
cargo services, along with access to the local airport. Due to its
normal reliance on electricity from Saint Thomas, the island was left
without power.
g.
Hurricane Maria (September 2017): Category 5 Hurricane Maria
came second, striking St. Croix and moving on to devastate Puerto
Rico. By the time Maria had passed, U.S. Virgin Islander lives had
been lost, and many of the Territory’s 110,000 residents were
without power, phones, food or running water. Ports and airports
were closed for weeks. All three major hospitals and critical care
centers across the Territory were damaged and patients flown to
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-10 
April 2022 
Puerto Rico after Irma had to again be moved the to the U.S. 
mainland. 
These second hurricane caused the Territory’s 
infrastructure to be even more severely weakened. 
8. 
Saffir-Simpson Hurricane Wind Scale to categorize hurricane intensity 
utilizing sustained wind speed (highest one-minute surface winds occurring 
within circulation of systems). Categories of Hurricanes are: 
Table A-4: Hurricane Intensity 
Category 
Wind Speeds 
Category 1: Very dangerous winds 
74-95 mph 
Category 2: Extremely dangerous winds 
96-110 mph 
Category 3: Devastating Damage 
111-129 mph 
Category 4: Catastrophic Damage 
130-156 mph 
Category 5: Catastrophic Damage 
Greater than 156 mph 
 
E. 
Coastal and Riverine Flooding 
1. 
Tropical weather patterns combined with hurricane season weather and fall 
rainy seasonal increase chances for flooding. 
2. 
Use of undersized culverts where roads cross guts as witnessed in Dorethea 
in St. Thomas or Gallows Bay in St. Croix contribute to localized flooding, 
but under the Hazard Mitigation Grant Program there are plans to proceed 
with mitigation actions to assist with this hazard. There will be a Territorial 
Culvert Identification Study also under the Hazard Mitigation Grant 
Program. 
3. 
Lack of effective storm water management and consistent maintenance of 
facilities also contributes to localized flooding. 
4. 
Encroachments to the floodplain areas due to urban development. 
F. 
Hazmat-Released Chemicals  
1. 
WAPA’s conversion to Liquefied Petroleum Gas (LPG) and large storage 
facilities on St. Thomas and St. Croix pose a risk of large-scale damage and 
injury should the facilities suffer an accident or explosion. 
2. 
Limetree Bay Terminals facilitating the storage, segregation, blending, and 
global movement of crude oils, fuel oils, bunker, gasolines, diesel, jet fuel, 
and liquid petroleum should the facilities suffer any incident explosions can 
occur. 
G. 
Pandemic Human  
1. 
Infectious disease outbreaks or other public health emergencies may occur 
in the Territory with little or no notice. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix A 
A-11 
April 2022 
2. 
A large tourist flow through the Territory may contribute to and spread 
disease outbreaks. 
3. 
Infectious disease can present special requirements for disease surveillance, 
rapid delivery of vaccines, antibiotics, or antiviral drugs, allocation of limited 
medical resources and expansion of health care services to meet a surge in 
demand for care. 
4. 
In 2019, the COVID-19 pandemic directly impacted the U.S Virgin Islands. 
A total of 3,772 cases and 30 deaths were directly linked to the pandemic. 
Travel was restricted to the islands from March 2019 to April 2020 as a 
mitigation factor.   
H. 
Cyber Attack 
1. 
Threat to networks, security access, and critical data exist today. Several 
governmental agencies have become recent victims to malicious cyber-
attacks. 
2. 
Assessments of vulnerabilities have begun with the assistance of the 
Department of Homeland Security and funding through federal grants can 
assist agencies in mitigation measures. Emphasis is on preventive measures 
to include cyber security policies and end-user education. 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix B 
B-1 
April 2022 
Appendix B to the Base Plan 
Incident Classification Procedures 
 
I. 
GENERAL 
A. 
This appendix (1) offers guidelines for classifying emergency incidents reported to 
the Territory; (2) defines emergency classifications and specifies who is authorized 
to make each classification; (3) serves as a guide for activating the EOC; and (4) 
establishes procedures for implementing the TEOP. The Emergency Operations 
Center Standard Operating Procedures (EOC SOP), developed under the 
Operations Division, includes comprehensive checklists for all Emergency Support 
Functions (ESFs) to ensure efficient and coordinated response operations. 
B. 
After receiving notifications, Territory agencies and participating private and 
volunteer organizations undertake predetermined actions according to emergency 
classifications. Each department and organization is responsible for developing its 
internal notification procedures. 
C. 
Situations reported but not covered by definitions in this appendix are handled on 
a case-by-case basis. Notification proceeds, as any one of the following senior 
VITEMA staff members deems necessary: 
1. 
VITEMA Director 
2. 
VITEMA Assistant Director 
3. 
VITEMA Deputy Director – Operations 
4. 
Other VITEMA staff temporarily designated by the Director because of 
unavailability of personnel listed above. 
II. 
DEFINITIONS 
A. 
Normal Operations:  Standard business hour operations with monitoring from the 
ECC. 
B. 
Class I Emergency (Virtual Activation or Monitoring-only):  An incident that 
requires or has the potential to require the commitment of resources from more 
than one agency to bring the situation under control. The incident is limited to a 
single District. A Class I Emergency may or may not have the potential to escalate 
to the next emergency classification. 
C. 
Class II Emergency:  An occurrence that requires a major response and significant 
commitment from several agencies but is still within the capabilities of Territory 
resources to control. Note:  This is the lowest class of emergency at which federal 
disaster assistance can be requested. If a hazard-specific annex is used, the incident 
is a minimum Class II incident.  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix B 
B-2 
April 2022 
D. 
Class III Emergency:  An incident that requires the response and commitment of 
nearly all Territory departments. This is the highest type of emergency 
classification. It is a certainty that federal assistance will be requested to protect 
the health and safety of Territory citizens. 
III. 
PROCEDURES 
E. 
Class I Emergency (Virtual Activation or Monitoring-only): 
1. 
VITEMA 911 Emergency Communications Centers (ECC) verifies the 
notification and gathers information on the incident. 
2. 
Information obtained in the field, or from other sources, is made available 
to VITEMA as soon as possible. In the event an EOC is not activated, either 
the St. Croix or St. Thomas VITEMA office will receive information from 
sources throughout the Territory and pass it on to the EOC Manager. 
3. 
VITEMA analyzes the information, makes a Class I Emergency Classification 
and begins notification. The EOC Manager, in accordance with SOPs, 
records and notifies the VITEMA Deputy Director of Operations. VITEMA 
will notify Territorial agencies, ESFs, and volunteer groups as required for 
further action. 
4. 
VITEMA notifies agencies that will take action as outlined in their ESF annex 
or agency-specific SOPs. 
5. 
The EOC will not be activated at this class, however, if ECC, EOC Manager, 
Operation Section Chief, or VITEMA Director determines it is necessary or 
more convenient to come into the EOC to support Incident Command, a 
limited activation will ensue. 
F. 
Class II Emergency: 
1. 
VITEMA ECC verifies the notification and gathers information on the 
incident. 
2. 
Information obtained in the field, or from other sources, is made available 
to VITEMA as soon as possible. In the event an EOC is not activated, either 
the St. Croix or St. Thomas VITEMA office will receive information from 
sources throughout the Territory and pass it on to the EOC Manager. 
3. 
VITEMA analyzes the information and begins notification. The EOC 
Manager, in accordance with SOPs, records and notifies the VITEMA Deputy 
Director of Operations.  
4. 
VITEMA will then begin notification of the appropriate Territorial agencies, 
ESFs, and volunteer groups, as per procedures outlined in EOC SOG. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix B 
B-3 
April 2022 
5. 
Territorial agencies, ESFs, and volunteer groups will respond as outlined in 
their ESF annex or agency-specific SOPs. 
6. 
If a Class II emergency is declared, Operations will determine if the EOC is 
to be opened, what portions of the EOP should be implemented, and if 
damage assessment teams are to be dispatched. 
7. 
A partial EOC activation with limited staff based on the nature and scope 
of the incident. The appropriate Territory agencies will be asked to send a 
representative to the EOC. 
8. 
When an EOC is activated, the Operations Section will receive and 
disseminate the information in accordance with the EOC SOP. The 
information will flow from and internally between various sources including 
ESFs, Territorial agencies, WebEOC and personnel in the field. 
G. 
Class III Emergency: 
1. 
VITEMA ECC verifies the notification and gathers information on the 
incident. 
2. 
Information obtained in the field, or from other sources, is made available 
to VITEMA as soon as possible. 
3. 
VITEMA analyzes the information and begins notification and contacts the 
Operations Section Chief and related ESF Coordinating Agency (if 
applicable). Operations will determine the incident classification and 
subsequent notification. 
4. 
After determining the incident to be beyond a Class II, the Operations 
Section Chief or VITEMA Director contacts the Governor’s Officer, while the 
VITEMA Watch Command continues to gather information. 
5. 
A Class III emergency will be made by a consensus of the VITEMA Director 
or designee and the Governor. 
6. 
If a Class III emergency determination is made, the entire EOP is 
implemented, all applicable EOC are activated and the VITEMA Operations 
Section begins notification as indicated in the EOC SOP. 
7. 
The EOC Manager and/or Deputy Director of Operations notifies the 
VITEMA Director the EOC is to be activated. Notified Territory agencies will 
take action as indicated in their SOP and send a representative to the EOC. 
Further actions to be taken will be determined from the EOC. 
8. 
When an EOC is activated, the Operations Section will receive and 
disseminate the information in accordance with the EOC SOP. The 
information will flow from and internally between various sources including 
ESFs, Territorial agencies, WebEOC and personnel in the field. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix C 
C-1 
April 2022 
Appendix C to the Base Plan 
Primary and Support Responsibilities Chart 
and Task Assignments by Function 
The following two sections to this appendix are vital for assigning disaster responsibilities in the 
U.S Virgin Islands. Table C-1 lists the Coordinating and Support Responsibilities and Table C-2 
lists the task assignments by Emergency Support Function. 
I. 
COORDINATING AND SUPPORT RESPONSIBILITIES CHART 
A. 
This annex shows assignments for state disaster response. It depicts relations of 
primary participating agencies to each function. 
B. 
This annex assigns primary and support responsibilities to various organizations 
for each emergency function in the TEOP. 
C. 
Only departments or agencies with major or unique roles are listed separately. 
D. 
Some emergency functions require shared or joint emergency responsibility─ 
when more than one organization has special capabilities in the same functional 
area or when needs of an emergency function exceed the capability of a single 
organization.  
E. 
Table C-1 includes a general list of emergency assignments. Detailed information 
about execution of emergency functions is provided in the functional annexes 
and supporting documents.  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix C 
C-2 
April 2022 
Table C-1. Emergency Support Functions, Responsibilities, and Assignments 
Territorial Agencies/ Organizations 
Basic 
Plan 
ESF 
1 
ESF 
2 
ESF 
3 
ESF 
4 
ESF 
5 
ESF 
6 
ESF 
7 
ESF 
8 
ESF 
9 
ESF 
10 
ESF 
11 
ESF 
12 
ESF 
13 
ESF
14 
ESF 
15 
Office of the Governor 
 
 
 
 
 
 
 
 
 
 
 
 
S 
 
 
C 
VITEMA 
C 
 
S 
 
 
C 
 
 
 
 
 
 
 
S 
 
S 
Bureau of Corrections 
 
S 
 
 
 
 
 
 
 
 
 
 
 
S 
 
S 
Bureau of Economic Research 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
S 
Bureau of Information and Technology 
 
 
C 
 
 
S 
 
 
 
 
 
 
 
 
 
S 
Bureau of Internal Revenue 
 
 
 
 
 
 
S 
S 
 
 
 
 
 
 
 
S 
Bureau of Motor Vehicles 
 
 
 
 
 
 
 
 
 
 
 
 
 
S 
 
S 
Department of Agriculture 
 
S 
 
 
 
S 
S 
S 
 
 
 
C 
 
 
 
S 
Department of Education 
 
S 
 
 
 
 
S 
S 
 
 
 
 
 
 
 
S 
Department of Finance 
 
 
 
 
 
 
 
S 
 
 
 
 
 
S 
 
S 
Department of Health 
 
 
 
 
 
S 
S 
 
C 
S 
 
S 
 
S 
 
S 
Department of Human Services 
 
S 
 
 
 
S 
C 
S 
S 
 
 
 
 
 
 
S 
Department of Justice 
 
 
 
 
 
 
 
 
S 
 
 
 
 
S 
 
S 
Department of Labor 
 
 
 
 
 
 
 
S 
 
 
 
 
 
 
 
S 
Department of Licensing and Consumer 
Affairs 
 
 
 
 
 
 
 
 
S 
 
 
S 
 
S 
 
S 
Department of Planning and Natural 
Resources 
 
S 
 
S 
 
 
 
 
S 
 
S 
 
 
S 
 
S 
Department of Property and Procurement 
 
C 
 
 
 
S 
 
C 
S 
 
 
 
S 
S 
 
S 
Department of Public Works 
 
S 
 
C 
 
S 
 
S 
S 
 
 
 
S 
S 
 
S 
Department of Sports, Parks & Recreation 
 
S 
 
S 
 
 
 
 
 
 
 
 
 
 
 
S 
Department of Tourism 
 
 
 
 
 
 
S 
 
 
 
 
 
 
 
 
S 
Division of Personnel 
 
 
 
 
 
S 
 
S 
 
 
 
 
 
 
 
S 
Governor Juan F. Luis Hospital 
 
 
 
 
 
 
 
 
S 
 
 
 
 
 
 
S 
Law Enforcement Planning Commission 
 
 
 
 
 
S 
 
 
 
 
 
 
 
S 
 
 
Legislature of the Virgin Islands (LEGIT) 
 
 
S 
 
 
 
 
 
 
 
 
 
 
S 
 
S 
Office of Collective Bargaining 
 
 
 
 
 
S 
S 
 
S 
 
 
 
 
 
 
S 
Office of Disaster Recovery 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
C 
S 
Office of Inspector General  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
S 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix C 
C-3 
April 2022 
Territorial Agencies/ Organizations 
Basic 
Plan 
ESF 
1 
ESF 
2 
ESF 
3 
ESF 
4 
ESF 
5 
ESF 
6 
ESF 
7 
ESF 
8 
ESF 
9 
ESF 
10 
ESF 
11 
ESF 
12 
ESF 
13 
ESF
14 
ESF 
15 
Office of Management and Budget 
 
 
 
 
 
 
 
S 
 
 
 
 
 
 
 
S 
Schneider Regional Medical Center 
 
 
 
 
 
 
 
 
S 
 
 
 
 
 
 
S 
Judicial Branch  
 
 
 
 
 
S 
 
 
 
 
 
 
 
S 
 
S 
University of Virgin Islands 
 
 
 
 
 
 
 
 
 
 
 
 
 
S 
 
S 
Veterans Affairs 
 
 
 
 
 
 
 
 
S 
 
 
 
 
 
 
S 
VI Energy Office* 
 
S 
 
 
 
S 
 
S 
 
 
 
 
C 
 
 
S 
VI Fire and Emergency Medical Services 
 
 
S 
 
C 
S 
 
 
S 
C 
C 
 
 
S 
 
S 
VI Housing Authority 
 
 
 
 
 
 
S 
 
 
 
 
 
 
 
 
S 
VI Housing Finance Authority 
 
 
 
 
 
 
S 
 
 
 
 
 
 
 
 
S 
VI Lottery 
 
 
 
 
 
 
 
 
 
 
 
 
 
S 
 
S 
VINGN 
 
 
S 
 
 
S 
 
 
 
 
 
 
 
 
 
S 
VI National Guard 
 
S 
S 
 
 
S 
 
 
 
S 
 
 
S 
S 
 
S 
VI Police Department 
 
S 
S 
S 
S 
S 
S 
S 
S 
S 
S 
S 
S 
C 
 
S 
VI Port Authority 
 
S 
 
 
S 
 
 
 
 
 
 
 
S 
S 
 
S 
VI Rescue Squads 
 
 
 
 
 
 
 
 
S 
S 
 
 
 
 
 
S 
VI Taxi Cab Commission 
 
S 
 
 
 
 
 
 
 
 
 
 
 
 
 
S 
VI Waste Management Agency 
 
 
 
S 
 
 
 
 
 
 
 
 
 
S 
 
S 
VI Water and Power Authority * 
 
 
 
S 
S 
S 
 
 
 
 
 
 
C 
 
 
S 
West Indian Comp LTD 
 
 
 
 
 
 
S 
 
 
 
 
 
 
 
 
 
VIYA 
 
 
S 
 
 
 
 
 
 
 
 
 
S 
 
 
 
WTJX 
 
 
S 
 
 
 
 
 
 
 
 
 
 
 
 
S 
Amateur Radio Emergency Service (ARES) 
 
 
S 
 
 
 
S 
 
S 
 
 
 
 
 
 
 
VOAD 
 
 
 
 
 
S 
S 
 
S 
 
 
 
 
 
 
 
American Red Cross 
 
S 
 
 
 
 
S 
 
S 
 
 
 
 
 
 
S 
Frederiksted Health Care Inc.  
 
 
 
 
 
 
S 
 
S 
 
 
 
 
 
 
 
St. Thomas East End Medical Center  
 
 
 
 
 
 
S 
 
S 
 
 
 
 
 
 
 
Ferry Operators 
 
S 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
VI Hotel Association 
 
 
 
 
 
 
S 
 
 
 
 
 
 
 
 
S 
Civil Air Patrol 
 
S 
S 
 
 
S 
 
 
 
S 
 
 
 
S 
 
 
Notes:   
C Coordinating, S  Support, *  Shared Coordinating Agencies 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix C 
C-4 
April 2022 
II. 
TASK ASSIGNMENTS BY EMERGENCY SUPPORT FUNCTION 
A. 
This annex lists each functional area of the Basic Plan and the ESF-based annex 
associated with that function. 
B. 
A concise list of basic task assignments for each functional area is also included. 
This list overviews the Basic Plan by summarizing each annex to it.  
Table C-2: Emergency Support Function Overview 
Emergency Support 
Function  
Overview of Responsibilities 
ESF 1, Transportation 1. Develop plans and procedures to conduct damage assessment at roads, 
ports, and airports. 
2. Manage emergency fuel distribution. 
3. Develop plans and procedures to repair critical infrastructure.  
4. Identify special equipment and trained personnel. 
ESF 2, 
Communications 
1. Monitor all situations to ensure proper response and adequate data for EOC 
leadership to reach decisions. 
2. Develop the capability to support all other functions. 
3. Update and improve the communications system constantly to guarantee 
survivability of this function, regardless of situation. 
4. Develop and maintain all communications systems and procedures, including 
training and exercises. 
5. Provide support to the Warning function. 
• Assist with development of the Emergency Alert System (EAS) Plan. 
• Coordination of warning equipment (NAWAS). 
• Augment failed or inadequate capabilities with the mobile command post 
or other portable communication equipment. 
• Coordinate actions with federal warning systems 
ESF 3, Public Works 
and Engineering 
1. Develop plans and procedures to conduct damage assessment. 
2. Develop plans and procedures to repair critical infrastructure.  
3. Develop procedures that provide public health sanitation services during an 
emergency. 
4. Identify special equipment and trained personnel. 
ESF 4, Firefighting 
1. Develop plans and procedures to monitor the fire suppression situation 
during classified emergencies. 
2. Coordinate damage assessment as it pertains to the fire suppression 
situation. 
3. Coordinate movement of fire equipment and personnel during emergency 
operations. 
4. Develop resource lists of fire equipment and personnel. 
5. Identify special equipment and trained personnel. 
ESF 5, Emergency 
Management 
1. Facilitate the Emergency Management Council (EMC) to make policy 
decisions relating to emergency management. 
2. Develop and maintain disaster plans, including exercises and training. 
3. Control and coordinate operations during disasters. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix C 
C-5 
April 2022 
Emergency Support 
Function  
Overview of Responsibilities 
4. Administer disaster relief activities. 
5. Provide disaster preparedness assistance. 
6. Develop, improve, and maintain the physical capabilities to respond (the 
Emergency Operation Center, equipment, trained personnel, and so on). 
7. Establish lines of communication with outside responding agencies and 
groups. 
8. Support Continuity of Government (COG). 
9. Develop plans and procedures to support local evacuations. 
ESF 6, Mass Care, 
Emergency 
Assistance, Housing, 
and Human 
Services 
1. Identify facilities suitable for temporary lodging and feeding. 
2. Develop and test procedures for managing mass care activities (feeding, 
registration, lodging, and so on). 
3. Establish liaison with outside agencies (American Red Cross [ARC], and so 
on) that participate in this activity. Coordinate their work with the TEOP. 
4. Help plan food and water availability. 
ESF 7, Resource 
Management    
1. Develop and test plans and procedures to procure resources during 
incidents. 
2. Develop and maintain resources lists in conjunction with the other functional 
areas. This includes identifying potential resource requirements. 
3. Exercise and train personnel in incident response procedures. 
4. Manage and incorporate donations into Territory response. 
ESF 8, Public Health 
and Medical Support 
1. Develop and maintain procedures for mass-casualty situations. 
2. Develop procedures to identify and organize trained personnel who can 
augment regular medical staff. 
3. Develop plans to provide medical care at mass care facilities if an evacuation 
occurs. 
4. Manage implementation and distribution of medical countermeasures for 
mass threats to public health. 
5. Develop guidelines for assisted nursing facilities. 
6. Develop plans for mass inoculation against disease. 
7. Develop resource lists for necessary supplies. 
8. Recruit and train qualified personnel. 
9. Manage mortuary activities. 
10. Develop procedures for identifying the dead and notifying next of kin. 
ESF 9, Search and 
Rescue 
1. Develop procedures for monitoring and reporting about search and rescue 
operations during incidents. 
2. Establish liaison with outside agencies that have a search and rescue 
responsibility (CAP, US Army, US Dept. of Agriculture, US Forest Service, 
FEMA, and others). Coordinate their plans and procedures into the TEOP. 
3. Develop resource lists of search and rescue personnel and equipment. 
ESF 10, Oil and 
Hazardous Materials 
Response 
1. Staff a 24-hour Emergency Response Hot Line.  
2. Develop plans and procedures for hazardous material response. 
3. Develop and improve hazardous materials response preparedness 
capabilities. 
4. Identify special equipment and trained personnel. 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix C 
C-6 
April 2022 
Emergency Support 
Function  
Overview of Responsibilities 
ESF 11, Agriculture 
1. Respond to an animal health emergency stemming from a natural disaster or 
bioterrorism. 
2. Identify personnel and equipment needs. 
ESF 12, Energy 
1. Analyze utilities and make recommendations to EOC leadership. 
2. Manage the distribution of temporary power.  
3. Identify personnel and equipment needs. 
ESF 13, Public Safety 
and Security 
1. Develop and maintain plans for active shooter/active threat. 
2. Develop plans to maintain law and order. 
3. Develop and maintain plans for site security and access control.   
4. Develop and test methods for traffic control, especially during evacuations or 
any mass movement of people. 
5. Test and improve crowd control procedures and plans. 
6. Assist in Warning and Communications functions. 
7. Establish regular liaison with federal law enforcement organizations. 
8. Develop resource lists of law enforcement equipment and personnel. 
9. Designate facilities for lodging institutionalized groups under state control. 
10. Respond to a terrorism incident, including chemical, biological, nuclear, 
radioactive, explosive materials, or cyberterrorism. 
ESF 14, Long-Term 
Community 
Recovery 
1. Develop and maintain necessary procedures to administer federal assistance. 
2. Assign responsibilities to external recovery partners. 
3. Assist with damage assessment. 
ESF 15, External 
Affairs 
1. Establish a Joint Information System (JIS) or Joint Information Center (JIC). 
2. Develop provisions with various departments to coordinate release of 
information to the public. 
3. All Agencies having PIOs are required to assist the JIC when informed by 
VITEMA or the Governor’s Office. 
4. Develop information authentication procedures. 
5. Develop procedures to clear information with Incident Command before 
release to the public. 
6. Develop procedures for using all news media to disseminate information, 
including EAS. 
7. Develop emergency public information for all hazards identified in the Base 
Plan. 
8. Develop rumor control procedures and plans. 
9. Conduct an annual program to acquaint news media with emergency plans. 
 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix D 
D-1 
April 2022 
 
Appendix D to the Base Plan 
Succession of Authority and Pre-Delegation 
Continuity of government and direction of ESFs are essential during emergency operations. 
The following lines of succession are specified to ensure availability of a service 
coordinator/head of Territory offices. Permanent replacements shall be made as required or 
authorized by law. 
Table D-1: Succession of Authority and Pre-Delegation 
Function - Territorial Governance 
Succession of Authority 
ESF 1 Transportation 
Department of Property and Procurement 
1. Commissioner 
2. Assistant Commissioner 
3. ESF Coordinator 
ESF 2 Communications 
Bureau of Information Technology (BIT) 
1. Director 
2. Assistant Director 
3. Deputy Director Operations 
4. Deputy Director Logistics 
ESF 3 Public Works and Engineering 
Department of Public Works 
1. Commissioner 
2. Assistant Commissioner - Administration 
3. Assistant Commissioner - Engineering 
4. Assistant Commissioner - Operations 
5. ESF Coordinator 
ESF 4 Firefighting 
VI Fire and Emergency Medical Services 
1. Director 
2. Assistant Director 
3. Chief 
4. Deputy Chief 
ESF 5 Emergency Management 
VITEMA 
1. Director 
2. Assistant Director 
3. Deputy Director Operations 
4. Deputy Director Planning & Preparedness 
ESF 6 Mass Care, Emergency Assistance, 
Housing, and Human Services 
Department of Human Services 
1. Commissioner 
2. Assistant Commissioner 
3. ESF Coordinator 
ESF 7 Resource Management 
Department of Property and Procurement 
1. Commissioner 
2. Assistant Commissioner 
3. ESF Coordinator 
ESF 8 Public Health and Medical Support 
Department of Health 
1. Commissioner 
2. Assistant Commissioner 
3. ESF Coordinator 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix D 
D-2 
April 2022 
 
Function - Territorial Governance 
Succession of Authority 
ESF 9 Search and Rescue 
VI Fire and Emergency Medical Services 
1. Director 
2. Assistant Director 
3. Chief 
4. Deputy Chief 
ESF 10 Oil and Hazardous Materials 
Response 
VI Fire and Emergency Medical Services 
1. Director 
2. Assistant Director 
3. Chief 
4. Deputy Chief 
ESF 11 Agriculture and Natural Resources 
Department of Agriculture 
1. Commissioner 
2. Assistant Commissioner 
3. Deputy Commissioner 
ESF 12 Energy 
Water and Power Authority 
1. Executive Director/CEO 
2. Chief Operating Officer 
3. Director – VIEO 
ESF 13 Public Safety and Security 
VI Police Department 
1. Commissioner 
2. Assistant Commissioner 
3. Deputy Commissioner 
4. Chief 
5. Deputy Chief 
6. ESF Coordinator 
ESF 14 Long-Term Community Recovery 
Office of Disaster Recovery 
1. Director 
2. Territorial Public Assistance Officer 
3. Territorial Hazard Mitigation Officer 
ESF 15 External Affairs 
Governor’s Office/Communications Division 
1. Director of Communications 
2. Deputy Director of Communications 
3. VITEMA PIO 
 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix E 
E-1 
April 2022 
Appendix E to the Base Plan 
Response Essential Elements of Information 
 
The essential elements of information (EEI) for coordinating response activities are included in this 
Annex. The EEIs support the lifeline reporting for Safety and Security; Food, Water, and Shelter; 
Health and Medical; Energy (Power & Fuel); Communications; Transportation; and Hazardous 
Materials. Table E-1 includes details regarding the EEI specifications, methodology, source, 
responsible entity, products, and timelines. A set of EEIS specific to Recovery is detailed in the 
United States Virgin Islands Disaster Recovery Plan.
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix E 
E-2 
April 2022 
Table E-1: Response Essential Elements of Information 
Essential Element of 
Information 
Specific Information 
Methodology/Source 
Responsible 
Entity 
Product 
Timeline 
Boundaries of Disaster 
Area (wind damage, 
tsunami, landslides, 
storm surge, plume, 
fires, flooding)  
• Geographic limits of damage (island-
specific Districts) 
• Description of the severity of damage 
• Estimated percentage of population 
evacuated or in need of evacuation 
• Hurricane track  
• Potential for tsunamis 
• Location of epicenter 
• Remote/overhead sensing 
• Aerial reconnaissance 
• EOC Reports  
• Assessment teams 
• Media 
• National Weather Service  
• USGS  
• Modeling 
• ESF 5 
• Geographic 
Information 
System (GIS) 
impact maps 
• Situation report 
• Status briefing 
Initial estimate no 
later than 6 hours 
and updated every 
operational period 
 
Modeling data as 
soon as available  
Boundaries of 
secondary disaster 
areas (flooding, 
tsunami, fires) 
• Same as above 
• Same as above 
 
• ESF 5 
• Same as above 
• Same as above 
Hazard-specific 
Information 
(hazardous, toxic, and 
radiological issues; 
safety hazards) 
• Extent of fires 
• Potential for (or extent of) flooding 
• Number/estimate of collapsed structures 
potentially requiring US&R 
• Actual or potential for release of 
hazardous materials 
• Actual or potential radiological incidents 
• Affected locations and what these 
contain 
• Personal safety issues 
• Public health concerns 
• Assessment Team reports 
• EOC Reports  
• Predictive modeling 
• VI Fire 
• VITEMA 
• National Weather Services 
• USCG 
 
• ESF 4 
• ESF 5 
• ESF 9 
• ESF 10 
• Operations 
• Safety Officer 
• GIS product 
depicting actual or 
potential threats 
• Situation report 
• Status briefing 
• Daily intelligence 
summary 
• Safety briefings/ 
messages 
Initial estimate no 
later than 4 hours 
and updated every 
12 hours  
Weather 
• Forecast post-incident and implications 
for impeding operations 
• National Weather Service  
 
• ESF 5 
• Safety Officer 
• Status briefings 
• Situation reports  
• Daily intelligence 
summaries 
As soon as possible 
post-incident and 
ongoing as required 
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix E 
E-3 
April 2022 
Essential Element of 
Information 
Specific Information 
Methodology/Source 
Responsible 
Entity 
Product 
Timeline 
Demographics 
• Population of impacted areas 
• Demographic breakdown of population 
including income levels, information on 
elderly and children 
• Number/type of housing units in 
impacted areas 
• Level of insurance coverage 
• Unemployment levels 
• Languages spoken within greater than 1 
percent of the population 
• Mitigation Reports 
• GIS 
• Predictive modeling 
• Census data 
• Office of Lt. 
Governor 
• District profiles 
• GIS analysis 
• Affected area 
analysis and 
summary 
Initial information 
no later than 24 
hours following 
incident 
Socio-Economic 
Impacts 
• Estimated population affected by district 
• Number of shelters open/population 
• Potential unmet shelter requirements 
• Number of homes affected (destroyed, 
damaged) 
• Percentage of banks functioning 
• Percentage of grocery stores open and 
able to meet the needs of the public 
• Percentage of pharmacies open and able 
to meet the needs of the public 
• GIS 
• Assessment teams 
• Reports from EOC  
• Voluntary agency reports 
• ESF 6 reports  
• News media and other open 
sources 
• ESF 5 
• ESF 6 
• Situation briefing 
• Situation 
reports/maps 
• Displays 
• GIS products 
• Daily Intelligence 
Summary 
Initial estimate no 
later than 12 hours 
and updated every 
operational period 
Initial Needs and 
Damage Assessments 
• Reports of rapid needs assessment and 
preliminary damage assessment teams 
• Damages reported by EOC, and other 
federal agency EOCs 
• Requests for federal support from the 
Territory 
• Rapid needs assessment and 
preliminary damage 
assessment team reports 
• Open sources 
• EOC Reports  
• Federal agency situation  
• ESF 5 
• Situation briefings 
• Situation reports 
• GIS products 
Initial estimate no 
later than 6 hours 
and updated every 
12 hours  
Status of 
Communications 
• Status of telecommunications service 
(including Internet and infrastructure, 
including towers) 
• Reliability of cellular service in affected 
areas 
• Potential requirement for radio/satellite 
communications capability 
• Status of emergency broadcast (TV, radio, 
cable) system and ability to disseminate 
information 
• EOC reports  
• ESF 2  
• News media/open sources 
• Telephone companies 
• Internet service provider 
• ESF 2 
• Situation briefings 
• Situation reports 
Initial estimate no 
later than 6 hours 
and updated every 
12 hours  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix E 
E-4 
April 2022 
Essential Element of 
Information 
Specific Information 
Methodology/Source 
Responsible 
Entity 
Product 
Timeline 
Access Points to 
Disaster Area 
• Location of access points  
• Credentials needed to enter 
• Best routes to approach the disaster area 
• Accessibility of ports and airports 
• EOC Reports 
• Port Authority 
• VI Police 
• Operations 
• ESF 1 
• ESF 5 
• ESF l3  
• GIS maps 
• Displays 
• Briefings 
Initial estimate no 
later than 6 hours 
and updated every 
12 hours  
Status of EOCs 
• Status of EOCs on St. Thomas, St. Croix, 
and St. John 
• Status of Island-specific Command 
• EOC reports  
• ESF 5 
• Situation briefings 
• Situation reports 
• GIS products 
No later than 1 hour 
following incident 
Status of Territory and 
Island-specific 
Operations 
• Territory, island, and district priorities 
• Major operations on each island 
• EFSs that have been activated  
• Status of support received under 
Emergency Management Assistance 
Compact (EMAC) 
• EOC reports 
• EOC 
• Situation briefings 
• Situation reports 
Initial determination 
no later than 6 hours 
following incident 
and updated every 
operational period 
Status of 
Transportation 
• Status of area airports 
• Status of major/primary roads 
• Status of ports 
• Status of evacuation routes 
• Status of public transit systems (buses 
and ferries) 
• Debris on major roadways 
• EOC reports  
• ESF 1 
• Assessment team reports 
• Port Authority 
• Airport Authority 
• Community relations 
• USACE 
• Aerial reconnaissance (Civil Air 
Patrol [CAP]) 
• ESF 1 
• Situation briefings 
• Situation reports 
Initial estimate no 
later than 12 hours 
and updated every 
12 hours  
Status of CI/KR 
• Status of potable and non-potable water 
and sewage treatment plants/distribution 
systems 
• Status of medical facilities (hospitals and 
nursing homes) 
• Status of behavioral health services 
• Status of schools and other public 
buildings 
• Status of fire and police facilities  
• Status of dams and drainage ways 
• Remote sensing/aerial 
reconnaissance (CAP) 
• EOC reports  
• ESF 3 
• ESF 8 
• ESF 12 
• GIS 
• ESF 5 
• Situation briefings 
• Situation reports 
• GIS products 
Initial estimate no 
later than 12 hours 
and updated every 
12 hours  
U.S. Virgin Islands Territorial Emergency Operations Plan  
 
Appendix E 
E-5 
April 2022 
Essential Element of 
Information 
Specific Information 
Methodology/Source 
Responsible 
Entity 
Product 
Timeline 
Status of Energy 
System 
• Status of electrical generating facilities 
and distribution grid 
• Households/people without electric 
power 
• Status of propane facilities and 
distribution  
• Households/people without propane gas 
• Status of refinery and gasoline  
• ESF 12 
• ESF 12 
• Situation briefings 
• Situation reports 
• GIS products 
Initial estimate no 
later than 12 hours 
and updated every 
12 hours  
Status of Federal 
Activations 
• Federal priorities 
• EFSs that have been activated  
• Major mission assignments that have 
been authorized 
• EOC 
• RRCC reports 
• Mission assignment lists 
• Federal 
Operations 
• Situation briefing  
• Situation report 
Initial determination 
no later than 3 hours 
following incident 
and updated every 
operational period 
Status of Remote 
Sensing Operations 
• Remote sensing missions requested 
• Target areas 
• Data availability 
• Report availability and format 
• Whether the CAP (Puerto Rico) has been 
activated 
• Where over-flights are being conducted 
• Other aerial reconnaissance missions in 
progress 
• Commercial remote sensing sources  
• Puerto Rico CAP 
• USCG 
• USGS 
• U.S. Department of Defense 
(DOD) 
• National Aeronautics and 
Space Administration (NASA) 
• Private-sector entities 
• ESF 5 
• Remote sensing 
imagery derived 
products 
Ongoing 
Status of Donations/ 
Voluntary Agency 
Activities 
• Whether a donations hotline has been 
established or whether the hotline is 
needed  
• Voluntary agencies actively involved in 
operations 
• Voluntary Organizations Active 
in Disaster (VOAD) 
• Voluntary agencies 
• Agency/ESF reports 
• ESF 5 
• Situation briefing  
• Situation report 
No later than 12 
hours following 
disaster declaration; 
updated every 
operational period 
Status of Key 
Personnel/Personnel 
Issues 
• Designation of Governor’s Authorized 
Representative (GAR)  
• Locations of National Guard commanders 
• GVI personnel killed or injured 
• GVI personnel impacted by the incident 
• Staffing needs for response operations 
• EOC reports 
• Media reports 
• ESF 5 
• Special reports to 
senior 
management 
• COOP/COG  
No later than 4 
hours following 
disaster declaration; 
updated every 
operational period 
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-6
April 2022 
Essential Element of 
Information 
Specific Information 
Methodology/Source 
Responsible 
Entity 
Product 
Timeline 
Status of Declarations 
• Status of emergency declaration
• Status of Presidential declaration
• Jurisdictions included
• Types of assistance authorized
• Special cost-share provisions regarding
direct federal assistance
• Territory declarations
• FEMA declarations
• ESF 5
• Situation briefing
• Situation report
• FEMA disaster
information
database
reporting
As soon as 
information 
becomes available; 
updated every 
operational period 
Priorities for 
Response/Upcoming 
Activities 
• Territory priorities
• Priorities:  water, food, power, medical,
S&R, communications
• EOC reports
• Rapid needs assessment team
reports
• Community relations field
reports
• Elected officials
• Joint State
and Federal
Operations
• Incident Action
Plan (IAP)
• Situation briefings
• Situation reports
• GIS products
Initial determination 
no later than 6 hours 
following incident 
and updated every 
operational period 
Major Issues/ 
Shortfalls 
• Actual or potential resource shortfalls of
the affected islands
• Anticipated requirements for federal
resources
• Potential or actual federal shortfalls
• Potential sources for resource shortfalls
• Resources available and where located
• EOC reports
• Rapid needs assessment team
reports
• Community relations field
reports
• ESF-7
• ESF 5
• Situation briefings
• Situation reports
• GIS products
Initial assessment no 
later than 6 hours 
following incident 
and updated every 
operational period 
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-7
December 2024 
XIII.
COMPREHENSIVE EMERGENCY SUPPORT FUNCTION (ESF) OPERATIONS GUIDE
Purpose and Scope 
This guide establishes a comprehensive framework for coordinating emergency response 
and recovery operations through the Territory's Emergency Support Function (ESF) 
structure. It defines essential responsibilities, reporting requirements, and coordination 
protocols to ensure effective multi-agency response during emergencies and disasters. 
This guide applies to all designated ESF lead and support agencies operating within the 
Territory's emergency management framework. It encompasses: 
•
Core task assignments for each ESF
•
Essential Elements of Information (EEI) reporting requirements
•
Resource management protocols
•
Interagency coordination procedures
•
Timeline requirements for information sharing and reporting
Situation 
The effective implementation of emergency response operations requires clear 
delineation of responsibilities and robust information sharing across multiple agencies 
and jurisdictions. This guide serves as the operational framework to achieve coordinated 
action through the ESF structure. 
Concept of Operations 
A. Each ESF operates within its designated scope while maintaining coordination with
other ESFs through established reporting channels.
B. Essential Elements of Information (EEI) provide the critical data points needed for
informed decision-making and resource allocation during emergency operations.
C. All ESFs maintain capabilities for sustained operations through:
1. Regular training and exercises
2. Resource management and tracking
3. Documentation of procedures
4. Quality improvement processes
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-8
December 2024 
Organization 
This guide is organized by individual ESF sections, each containing: 
•
Primary mission and objectives
•
Core task assignments
•
Essential Elements of Information requirements
•
Timeline requirements
•
Key coordination partnerships
•
Resource management guidance
General Requirements for All ESFs 
Documentation Standards 
1. Record Keeping
o
Maintain detailed activity logs with timestamps
o
Use standardized reporting formats
o
Document information sources
o
Track resource allocation and usage
2. Coordination Protocols
o
Share information across relevant ESFs
o
Maintain continuous EOC communication
o
Coordinate with federal and territorial partners
o
Verify information before dissemination
3. Quality Control
o
Verify data accuracy through multiple sources
o
Include confidence levels in assessments
o
Document information gaps and limitations
o
Cross-reference with other ESF reports
4. Reporting Best Practices
o
Use clear, concise language
o
Include specific metrics when possible
o
Highlight critical changes from previous reports
o
Prioritize life-safety information
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-9
December 2024 
XIV.
ESF-SPECIFIC GUIDANCE
ESF 1 – Transportation 
Coordinating Agency: Department of Property and Procurement 
Primary Mission: Coordinate and manage transportation systems and infrastructure 
during emergencies. 
Core Task Assignments: 
1. Conduct damage assessment of:
o
Roads and highways
o
Ports and harbors
o
Airports and helipads
2. Manage emergency fuel distribution
3. Repair critical transportation infrastructure
4. Identify and maintain specialized equipment inventory
Essential Elements of Information: 
•
Transportation infrastructure operational status
•
Emergency route accessibility
•
Port and airport functionality
•
Public transit system status
•
Debris impacts on major roadways
•
Emergency fuel availability and distribution
Timeline Requirements: 
•
Initial assessment: Within 12 hours
•
Updates: Every 12 hours
•
Immediate notification of critical changes
Key Coordination Partners: 
Primary Supporting Agencies: 
•
VITEMA (S) - Coordinate damage assessment efforts
•
VI National Guard (S) - Provide transportation support and equipment
•
VI Police Department (S) - Route security and traffic control
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-10
December 2024 
•
VI Port Authority (S) - Port facility assessment and operations
•
Department of Public Works (S) - Infrastructure repair and route clearance
•
Civil Air Patrol (S) - Aerial assessment support
•
Ferry Operators (S) - Marine transportation support
•
Department of Agriculture (S) - Support transportation of agricultural resources
•
Department of Education (S) - Support facility access and school transportation
•
Department of Human Services (S) - Support special needs transportation
•
Department of Planning and Natural Resources (S) - Environmental impact
assessment
•
Department of Sports, Parks & Recreation (S) - Facility access support
•
VI Energy Office (S) - Fuel coordination support
•
VI Taxi Cab Commission (S) - Ground transportation support
•
American Red Cross (S) - Support evacuation transportation needs
•
Bureau of Corrections (S) - Support secure transportation needs
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-11
December 2024 
ESF 2 – Communications 
Coordinating Agency: Bureau of Information and Technology 
Primary Mission: Ensure reliable emergency communications and coordinate 
information technology resources. 
Core Task Assignments: 
1. Monitor communications systems
2. Support multi-agency coordination
3. Maintain emergency communications capabilities
4. Develop redundant systems
5. Support warning functions:
o
Emergency Alert System management
o
Mobile command post operations
Essential Elements of Information: 
•
Communications infrastructure status
•
Cellular network reliability
•
Internet service availability
•
Emergency broadcast capabilities
•
Interoperable communications function
•
Backup system status
Timeline Requirements: 
•
Initial assessment: Within 6 hours
•
Updates: Every 12 hours
•
Immediate notification of system failures
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Legislature of the Virgin Islands (S) - Legislative communications support
•
VI Fire and Emergency Medical Services (S) - Emergency response
communications
•
VI National Guard (S) - Communications equipment and support
•
VI Police Department (S) - Security communications coordination
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-12
December 2024 
•
VINGN (S) - Network infrastructure support
•
VIYA (S) - Telecommunications support
•
WTJX (S) - Public broadcast support
•
Amateur Radio Emergency Service (ARES) (S) - Backup communications
•
Civil Air Patrol (S) - Aerial communications support
•
VI National Guard (for communications support)
•
VI Police Department (for security communications)
•
VIYA (for telecommunications)
•
WTJX (for public broadcasting)
•
Amateur Radio Emergency Service (ARES) (for backup communications)
•
Civil Air Patrol (for aerial communications)
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-13
December 2024 
ESF 3 - Public Works and Engineering 
Coordinating Agency: Department of Public Works 
Primary Mission: Coordinate public works and engineering-related support for 
emergency operations. 
Core Task Assignments: 
1. Infrastructure damage assessment
2. Critical facility repairs
3. Public health sanitation services
4. Route clearance operations:
o
Clear primary/secondary roads
o
Prioritize emergency routes
o
Manage debris removal
o
Establish debris sites
5. Maintain specialized equipment inventory
Essential Elements of Information: 
•
Infrastructure damage status
•
Water/wastewater system functionality
•
Debris removal progress
•
Route clearance status
•
Critical facility operations
•
Resource availability
Timeline Requirements: 
•
Initial assessment: Within 12 hours
•
Updates: Every 12 hours
•
Immediate notification of critical failures
Key Coordination Partners: 
Primary Supporting Agencies: 
•
VI Police Department (S) - Access control and security
•
VI Waste Management Agency (S) - Debris management operations
•
VI Water and Power Authority (S) - Utility infrastructure repair
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-14
December 2024 
•
Department of Planning and Natural Resources (S) - Environmental assessment
•
Department of Sports, Parks & Recreation (S) - Facility support
•
VI Waste Management Agency (for debris management)
•
VI Water and Power Authority (for utility infrastructure)
•
VI Police Department (for access control)
•
Department of Planning and Natural Resources
•
Department of Sports, Parks & Recreation
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-15
December 2024 
ESF 4 – Firefighting 
Coordinating Agency: VI Fire and Emergency Medical Services 
Primary Mission: Coordinate firefighting activities and support fire suppression 
operations. 
Core Task Assignments: 
1. Monitor fire situations
2. Coordinate fire-related damage assessment
3. Manage fire resource deployment
4. Maintain resource inventories
5. Coordinate specialized response teams
Essential Elements of Information: 
•
Active fire locations and status
•
Fire facility operations
•
Resource availability
•
High-risk areas
•
Containment progress
•
Water supply status
Timeline Requirements: 
•
Initial assessment: Within 4 hours
•
Updates: Every 12 hours
•
Immediate notification of major incidents
Key Coordination Partners: 
Primary Supporting Agencies: 
•
VI Police Department (S) - Scene security and access control
•
VI Port Authority (S) - Marine/port fire response
•
VI Water and Power Authority (S) - Utility support and water supply
•
Department of Public Works (S) - Access and infrastructure support
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-16
December 2024 
ESF 5 - Emergency Management 
Coordinating Agency: Virgin Islands Territorial Emergency Management Agency 
Primary Mission: Coordinate and support overall emergency management activities. 
Core Task Assignments: 
1. Support Emergency Management Council
2. Maintain emergency plans
3. Coordinate operations
4. Administer disaster relief
5. Support evacuation operations
6. Maintain EOC capabilities
7. Ensure continuity of government
8. Coordinate with external agencies
Essential Elements of Information: 
•
Incident boundaries and impacts
•
Population affected
•
EOC operational status
•
Resource needs and gaps
•
Agency coordination status
•
Declaration status
Timeline Requirements: 
•
EOC status: Within 1 hour
•
Initial assessment: Within 6 hours
•
Updates: Every operational period
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Bureau of Information Technology (S) - Systems and IT support
•
Department of Health (S) - Public health coordination
•
Department of Human Services (S) - Mass care coordination
•
Department of Public Works (S) - Infrastructure support
•
Division of Personnel (S) - Personnel resource management
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-17
December 2024 
•
Law Enforcement Planning Commission (S) - Law enforcement coordination
•
Office of Collective Bargaining (S) - Personnel management support
•
Judicial Branch (S) - Legal system continuity
•
VI Energy Office (S) - Energy resource coordination
•
VI Fire and Emergency Medical Services (S) - Emergency response support
•
VINGN (S) - Network infrastructure support
•
VI National Guard (S) - Operational support
•
VI Police Department (S) - Security operations
•
VI Water and Power Authority (S) - Utility operations
•
VOAD (S) - Volunteer coordination
•
Civil Air Patrol (S) - Aerial support operations
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-18
December 2024 
ESF 6 - Mass Care 
Coordinating Agency: Department of Human Services 
Primary Mission: Coordinate mass care, emergency assistance, housing, and human 
services. 
Core Task Assignments: 
1. Identify shelter facilities
2. Manage mass care operations
3. Coordinate with support agencies
4. Plan food/water distribution
5. Support housing needs
Essential Elements of Information: 
•
Shelter status and populations
•
Resource needs
•
Housing impacts
•
Essential service availability
•
Vulnerable population needs
Timeline Requirements: 
•
Initial assessment: Within 12 hours
•
Updates: Every operational period
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Department of Agriculture (S) - Food resource coordination
•
Department of Education (S) - Facility support and shelter operations
•
Office of Collective Bargaining (S) - Personnel management support
•
VI Housing Authority (S) - Emergency housing coordination
•
VI Housing Finance Authority (S) - Housing resource management
•
VI Police Department (S) - Shelter security operations
•
Department of Tourism (S) - Visitor assistance coordination
•
West Indian Comp LTD (S) - Resource support
•
Amateur Radio Emergency Service (ARES) (S) - Emergency communications
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-19
December 2024 
•
VOAD (S) - Volunteer coordination
•
American Red Cross (S) - Mass care and shelter support
•
Frederiksted Health Care Inc. (S) - Medical support services
•
St. Thomas East End Medical Center (S) - Medical support services
•
VI Hotel Association (S) - Temporary housing support
•
Department of Agriculture (for food resources)
•
Department of Education (for facilities)
•
Department of Health (for medical support)
•
VI Police Department (for security)
•
American Red Cross (for mass care support)
•
VOAD (for volunteer coordination)
•
VI Hotel Association (for temporary housing)
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-20
December 2024 
ESF 7 - Resource Support 
Coordinating Agency: Department of Property and Procurement 
Primary Mission: Coordinate resource support and logistics operations. 
Core Task Assignments: 
1. Manage resource procurement
2. Maintain resource databases
3. Train logistics personnel
4. Coordinate donations
5. Track resource deployment
Essential Elements of Information: 
•
Resource availability
•
Supply chain status
•
Critical shortages
•
Donation management
•
Distribution capabilities
Timeline Requirements: 
•
Initial assessment: Within 6 hours
•
Updates: Every operational period
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Bureau of Internal Revenue (S) - Financial tracking support
•
Department of Agriculture (S) - Agricultural resource coordination
•
Department of Education (S) - Facility resource management
•
Department of Finance (S) - Financial management
•
Department of Human Services (S) - Human service resources
•
Department of Labor (S) - Personnel resource support
•
Division of Personnel (S) - Staff resource coordination
•
Office of Management and Budget (S) - Budget management
•
VI Energy Office (S) - Energy resource coordination
•
VI Police Department (S) - Security resource management
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-21
December 2024 
•
Department of Public Works (S) - Equipment and infrastructure resources
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-22
December 2024 
ESF 8 - Public Health and Medical 
Coordinating Agency: Department of Health 
Primary Mission: Coordinate public health and medical support services. 
Core Task Assignments: 
1. Manage mass casualty response
2. Coordinate medical personnel
3. Support shelter medical needs
4. Implement countermeasures
5. Manage mortuary operations
6. Coordinate patient tracking
7. Support special needs populations
Essential Elements of Information: 
•
Healthcare facility status
•
Medical resource availability
•
Public health threats
•
Casualty/fatality information
•
Special medical needs
Timeline Requirements: 
•
Initial assessment: Within 12 hours
•
Updates: Every 12 hours
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Department of Human Services (S) - Special needs population support
•
Department of Justice (S) – Mass fatality management, mortuary affairs, and
medical examiner functions
•
Department of Licensing and Consumer Affairs (S) - Medical licensing
coordination
•
Department of Planning and Natural Resources (S) - Environmental health
support
•
Department of Property and Procurement (S) - Medical resource procurement
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-23
December 2024 
•
Department of Public Works (S) - Healthcare facility support
•
Governor Juan F. Luis Hospital (S) - Medical care and treatment
•
Office of Collective Bargaining (S) - Healthcare personnel management
•
Schneider Regional Medical Center (S) - Medical care and treatment
•
Veterans Affairs (S) - Veteran healthcare services
•
VI Fire and Emergency Medical Services (S) - Emergency medical response
•
VI Police Department (S) - Security for medical operations
•
Amateur Radio Emergency Service (ARES) (S) - Medical communications
•
VOAD (S) - Healthcare volunteer coordination
•
American Red Cross (S) - Health services support
•
Frederiksted Health Care Inc. (S) - Community healthcare services
•
St. Thomas East End Medical Center (S) - Community healthcare services
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-24
December 2024 
ESF 9 - Search and Rescue 
Coordinating Agency: VI Fire and Emergency Medical Services 
Primary Mission: Coordinate search and rescue operations. 
Core Task Assignments: 
1. Monitor SAR operations
2. Coordinate with partners
3. Maintain resource lists
4. Track mission status
5. Support specialized teams
Essential Elements of Information: 
•
Active SAR missions
•
Resource needs
•
Operation progress
•
Environmental hazards
•
Victim locations
Timeline Requirements: 
•
Initial assessment: Within 4 hours
•
Updates: Every 12 hours
Key Coordination Partners: 
Primary Supporting Agencies: 
•
VI National Guard (S) - SAR operational support
•
VI Police Department (S) - Security and investigation support
•
VI Rescue Squads (S) - Technical rescue operations
•
Civil Air Patrol (S) - Aerial search operations
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-25
December 2024 
ESF 10 - Hazardous Materials 
Coordinating Agency: VI Fire and Emergency Medical Services 
Primary Mission: Coordinate hazardous materials response operations. 
Core Task Assignments: 
1. Operate 24/7 hotline
2. Coordinate HAZMAT response
3. Maintain response capabilities
4. Track specialized resources
Essential Elements of Information: 
•
Incident locations
•
Material types/quantities
•
Containment status
•
Environmental impacts
•
Resource needs
Timeline Requirements: 
•
Initial assessment: Within 4 hours
•
Updates: Every 12 hours
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Department of Planning and Natural Resources (for environmental)
•
VI Police Department (for security)
•
Department of Health (for health impacts)
•
VI Water and Power Authority (for utility hazards)
•
ESF 5 (Emergency Management) (for coordination)
•
ESF 8 (Health/Medical) (for exposure treatment)
•
ESF 13 (Public Safety) (for scene security)
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-26
December 2024 
ESF 11 – Agriculture 
Coordinating Agency: Department of Agriculture 
Primary Mission: Support agricultural and natural resource protection. 
Core Task Assignments: 
1. Monitor animal health
2. Respond to agricultural emergencies
3. Coordinate with producers
4. Support food safety
Essential Elements of Information: 
•
Agricultural impacts
•
Animal health issues
•
Food supply status
•
Resource needs
Timeline Requirements: 
•
Initial assessment: Within 24 hours
•
Updates: As required
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Department of Health (S) - Food safety and public health
•
Department of Licensing and Consumer Affairs (S) - Business regulation
•
Department of Planning and Natural Resources (S) - Natural resource protection
•
VI Police Department (S) - Agricultural security
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-27
December 2024 
ESF 12 – Energy 
Coordinating Agencies: VI Energy Office and VI Water and Power Authority 
(shared) 
Primary Mission: Coordinate energy infrastructure restoration and fuel supply. 
Core Task Assignments: 
1. Analyze utility status
2. Manage temporary power
3. Track fuel supplies
4. Coordinate repairs
Essential Elements of Information: 
•
Power grid status
•
Fuel availability
•
Critical facility power
•
Restoration timeline
Timeline Requirements: 
•
Initial assessment: Within 12 hours
•
Updates: Every 12 hours
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Department of Agriculture (S) - Agricultural energy needs
•
Department of Licensing and Consumer Affairs (S) - Utility regulation
•
Department of Property and Procurement (S) - Resource procurement
•
Department of Public Works (S) - Infrastructure support
•
VI National Guard (S) - Security and operational support
•
VI Police Department (S) - Infrastructure security
•
VI Port Authority (S) - Port facility operations
•
VIYA (S) - Communications infrastructure support
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-28
December 2024 
ESF 13 - Public Safety 
Coordinating Agency: VI Police Department 
Primary Mission: Coordinate law enforcement and security operations. 
Core Task Assignments: 
1. Maintain public order
2. Control access/traffic
3. Provide facility security
4. Support evacuations
5. Respond to threats
6. Coordinate law enforcement
Essential Elements of Information: 
•
Security requirements
•
Public safety threats
•
Resource availability
•
Access control status
Timeline Requirements: 
•
Initial assessment: Within 6 hours
•
Updates: Every 12 hours
Key Coordination Partners: 
Primary Supporting Agencies: 
•
Office of the Governor (S) - Executive direction
•
Bureau of Corrections (S) - Correctional facility security
•
Bureau of Motor Vehicles (S) - Vehicle regulation support
•
Department of Finance (S) - Financial tracking
•
Department of Health (S) - Public health security
•
Department of Justice (S) - Legal support
•
Department of Licensing and Consumer Affairs (S) - Regulatory enforcement
•
Department of Planning and Natural Resources (S) - Environmental enforcement
•
Department of Property and Procurement (S) - Resource support
•
Department of Public Works (S) - Infrastructure security
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-29
December 2024 
•
Law Enforcement Planning Commission (S) - Strategic planning
•
Legislature of the Virgin Islands (S) - Legislative support
•
Judicial Branch (S) - Legal system support
•
University of Virgin Islands (S) - Campus security
•
VI Fire and Emergency Medical Services (S) - Emergency response
•
VI Lottery (S) - Gaming security
•
VI National Guard (S) - Security operations
•
VI Port Authority (S) - Port security
•
VI Waste Management Agency (S) - Environmental security
•
Civil Air Patrol (S) - Aerial support
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-30
December 2024 
ESF 14 – Recovery 
Coordinating Agency: Office of Disaster Recovery 
Primary Mission: Coordinate long-term community recovery operations. 
Core Task Assignments: 
1. Manage federal assistance
2. Support recovery planning
3. Coordinate assessments
4. Track progress
Essential Elements of Information: 
•
Recovery needs
•
Assistance programs
•
Economic impacts
•
Progress metrics
Timeline Requirements: 
•
Initial assessment: Within 24 hours
•
Updates: As required
Key Coordination Partners: 
Primary Supporting Agencies: 
•
VITEMA (for coordination)
•
VITEMA (S) - Emergency management coordination
•
Bureau of Motor Vehicles (S) - Transportation recovery
•
Department of Finance (S) - Financial recovery
•
Department of Justice (S) - Legal support
•
Department of Licensing and Consumer Affairs (S) - Business recovery
•
Department of Planning and Natural Resources (S) - Environmental recovery
•
Department of Property and Procurement (S) - Resource coordination
•
Department of Public Works (S) - Infrastructure recovery
•
Legislature of the Virgin Islands (S) - Legislative support
•
Judicial Branch (S) - Legal system recovery
•
University of Virgin Islands (S) - Educational recovery
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-31
December 2024 
•
VI Lottery (S) - Gaming operations recovery
•
VI Waste Management Agency (S) - Waste system recovery
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-32
December 2024 
ESF 15 - External Affairs 
Coordinating Agency: Office of the Governor 
Primary Mission: Coordinate public information and community relations. 
Core Task Assignments: 
1. Operate Joint Information Center
2. Manage public information
3. Monitor media coverage
4. Control rumors
5. Coordinate with partners
Essential Elements of Information: 
•
Public information needs
•
Media coverage
•
Rumor tracking
•
Message effectiveness
Timeline Requirements: 
•
Initial setup: Within 2 hours
•
Updates: Every operational period
Key Coordination Partners: 
Primary Supporting Agencies: 
•
VITEMA (for coordination)
•
Bureau of Corrections (S) - Correctional facility information
•
Bureau of Economic Research (S) - Economic impact information
•
Bureau of Information Technology (S) - Technical support
•
Bureau of Internal Revenue (S) - Tax information
•
Bureau of Motor Vehicles (S) - Transportation information
•
Department of Agriculture (S) - Agricultural information
•
Department of Education (S) - School information
•
Department of Finance (S) - Financial information
•
Department of Health (S) - Public health information
•
Department of Human Services (S) - Social services information
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-33
December 2024 
•
Department of Justice (S) - Legal information
•
Department of Labor (S) - Employment information
•
Department of Licensing and Consumer Affairs (S) - Consumer information
•
Department of Planning and Natural Resources (S) - Environmental information
•
Department of Property and Procurement (S) - Resource information
•
Department of Public Works (S) - Infrastructure information
•
Department of Sports, Parks & Recreation (S) - Recreational facility information
•
Department of Tourism (S) - Tourism impact information
•
Division of Personnel (S) - Personnel information
•
Governor Juan F. Luis Hospital (S) - Hospital status information
•
Legislature of the Virgin Islands (S) - Legislative information
•
Office of Collective Bargaining (S) - Labor relations information
•
Office of Inspector General (S) - Oversight information
•
Office of Management and Budget (S) - Budget information
•
Schneider Regional Medical Center (S) - Hospital status information
•
Judicial Branch (S) - Court information
•
VI Energy Office (S) - Energy information
•
VI Fire and Emergency Medical Services (S) - Emergency response information
•
VI Housing Authority (S) - Housing information
•
VI Housing Finance Authority (S) - Housing program information
•
VI National Guard (S) - Military support information
•
VI Police Department (S) - Law enforcement information
•
VI Port Authority (S) - Port status information
•
VIYA (S) - Communications status
•
WTJX (S) - Broadcast support
•
American Red Cross (S) - Relief information
•
VI Hotel Association (S) - Accommodation information
•
Bureau of Information Technology (for systems)
•
Department of Tourism (for visitor information)
•
WTJX (for broadcast support)
•
All Territorial Agencies' PIOs (as needed)
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-34
December 2024 
Universal Resource Management Requirements for All ESFs 
Prior to any incident, all ESFs must develop, maintain, and be prepared to implement 
comprehensive resource management protocols. Each ESF should: 
1. Resource Planning and Documentation
•
Maintain current inventory of all available resources
•
Document resource typing and capabilities
•
Keep updated contact lists for resource providers
•
Track resource locations and status
•
Maintain cost documentation procedures
•
Keep updated vendor and contractor agreements
•
Document mutual aid agreements and procedures
2. Personnel Management
•
Maintain roster of qualified personnel
•
Track training and certification requirements
•
Document availability and deployment status
•
Keep updated contact information
•
Track specialized skill sets and capabilities
•
Maintain documentation of training completed
3. Equipment and Supply Tracking
•
Maintain inventory management system
•
Track equipment maintenance status
•
Document equipment specifications
•
Keep maintenance records
•
Track shelf life of supplies
•
Document storage locations
•
Maintain mobilization requirements
4. Contract and Procurement Management
•
Maintain pre-positioned contracts
•
Keep updated vendor lists
•
Document procurement procedures
•
Track contract performance
•
Maintain cost tracking systems
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-35
December 2024 
•
Document approval processes
•
Keep updated rate schedules
5. Resource Deployment Procedures
•
Document activation protocols
•
Maintain deployment checklists
•
Track resource movements
•
Document chain of custody
•
Keep transportation requirements
•
Maintain staging area requirements
•
Track operational periods
6. Resource Demobilization
•
Document release procedures
•
Track return transport
•
Maintain inspection requirements
•
Document rehabilitation needs
•
Track return to service status
•
Keep cost reconciliation processes
•
Maintain after-action documentation
7. Financial Management
•
Track all costs associated with resources
•
Maintain reimbursement procedures
•
Document cost-sharing agreements
•
Keep updated budget tracking
•
Track overtime and personnel costs
•
Maintain audit documentation
•
Document federal assistance requirements
Resource Management 
Each ESF should maintain: 
1. Personnel rosters
2. Equipment inventories
3. Supply tracking systems
4. Mutual aid agreements
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix E 
E-36
December 2024 
5. Contract resources
Training Requirements 
Each ESF should: 
1. Conduct regular training
2. Participate in exercises
3. Update procedures
4. Document capabilities
Quality Improvement 
Each ESF should: 
1. Review incident performance
2. Update procedures
3. Share lessons learned
4. Implement improvements
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix F 
F-1
December 2024 
Appendix F to the Base Plan 
At-Risk Populations Communications Procedures Checklist 
Purpose 
The purpose of this checklist is to establish a communications plan for at-risk populations 
within the Virgin Islands. Identified at-risk populations include older adults, individuals 
with access and functional needs (AFN), individuals with limited to no English proficiency, 
individuals with limited transportation or access to financial resources, children, and 
individuals experiencing homelessness.   
Roles and Responsibilities 
The Communications Team, led by the Public Information Officer (PIO), is responsible for 
developing, implementing, and monitoring the communication procedures for at-risk 
populations.  
ESF2 (Communications) is responsible for assessing the availability and viability of 
communication channels during emergencies and advising the Communications Team 
accordingly.  
All Program staff and partners are responsible for understanding and following these 
procedures, as well as providing feedback and suggestions for improvement based on 
their interactions with at-risk populations.  
Education and Preparedness Efforts 
In steady state operations, the communications team’s primary focus is outreach, 
education, and preparedness messaging based on the four main processes but also by a 
phased approach also listed below:   
1. Conduct regular outreach and engagement with at-risk populations and their
trusted community partners to build relationships, understand their needs and
preferences, and gather feedback on communication strategies.
2. Develop and maintain a database of contact information for key community
partners and organizations serving at-risk populations.
3. Create and disseminate preparedness materials and messages tailored to each at-
risk population, in appropriate formats and languages, through multiple channels
(e.g., print, digital, in-person).
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix F 
F-2
December 2024 
4. Conduct regular training and exercises to test and refine communication
procedures, in collaboration with community partners and representatives of at-
risk populations.
•
Phase One – Development of Messages/Materials
1) Identify at-risk population within the territory that the message will target.
2) Identify alternative communication channels needed for message
distribution (newspaper, social media, radio, townhalls, etc).
3) Ensure production of information in an appropriate manner for each target
audience.
a.
Non-English Languages
b. Braille
c.
Large Print
•
Phase Two – Identification of Distribution Channels
1) Identify the distribution channels available to distribute information
effectively in the respective district.
2) Identify funding available to distribute information effectively.
3) Plan distribution timeline:
a.
Radio Broadcast Frequency
b. Social Media Posting Frequency
c.
Newspaper/Newsmedia (print and online)
d. Electronic Billboards/Signage
•
Phase Three – Presentation of Information
1) Identify appropriate venue for presentation of information (community
halls, senior centers, schools, community organizations, etc.)
2) Ensure the presentation of information in an appropriate manner for each
target audience:
a.
Non-English Speakers
b. American Sign Language Interpretation
c.
Printed and Digital Format (including large-print)
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix F 
F-3
December 2024 
Cultural Competency 
1. The procedure should emphasize the importance of cultural competency in all
communication efforts, including:
2. Developing messages and materials that are culturally appropriate and sensitive to
the diverse beliefs, values, and practices of at-risk populations.
3. Engaging community partners and representatives who are trusted and respected
by the target populations to help develop and disseminate messages.
Integration with Other Plans 
1. The procedure should be explicitly integrated with other relevant plans and
procedures, such as:
2. The 
Program's 
overall 
Emergency 
Operations 
Plan 
(EOP) 
and 
Crisis
Communications Plan.
3. Plans and procedures of key partners and stakeholders, such as public health, social
services, and community-based organizations.
4. Regional or state-level plans and procedures for communicating with at-risk
populations.
Emergency Communications with At-Risk Populations 
In the event of a declared emergency, assessment of the viability and access to 
communications channels falls to ESF2. Upon that assessment, the communications team 
will utilize one, several, or all of the following to communicate emergency messaging to 
at-risk populations based on availability (i.e., power grid, internet availability, phone lines, 
etc.). All printed/published materials will be multilingual and any live video format will 
include ASL interpretation either live or via web interpretation service.   
The following listed will be followed:  
1. Activate the communication procedure based on the nature and scope of the
emergency, as well as the assessed needs of at-risk populations.
2. Coordinate with ESF2 to determine the most effective and available communication
channels for each at-risk population, based on the current situation.
3. Develop and disseminate emergency messages and updates in appropriate
formats and languages, using pre-scripted templates and the database of
community partners as needed.
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix F 
F-4
December 2024 
4. Monitor and address any feedback, concerns, or questions from at-risk
populations, in coordination with community partners and Program staff.
5. Provide regular updates and briefings to Program leadership and partners on the
status and effectiveness of communication efforts with at-risk populations.
Communication Channels 
Based on the assessment by ESF2, the Communications Team will utilize one, several, or 
all of the following channels to communicate emergency messaging to at-risk 
populations:  
•
ALERT VI/IPAWS (multilingual messaging available)
•
Traditional press briefings/conferences broadcast over radio, television, and
internet
•
Traditional news media (print and online)
•
Online publishing via websites and social media
•
Radio broadcasting
•
Television broadcasting
•
Electronic billboards/signage
•
Sound trucks
•
Printed collateral (time permitting)
•
Direct outreach through community partners and organizations
All printed/published materials will be multilingual and any live video format will include 
ASL interpretation either live or via web interpretation service.  
Evaluation and Improvement  
After each emergency or exercise, the Communications Team will: 
1. Conduct a debrief with Program staff, partners, and representatives of at-risk
populations to gather feedback on the effectiveness of the communication
procedures.
2. Analyze the feedback and identify areas for improvement, best practices, and
lessons learned.
3. Update the communication procedures and materials based on the findings, in
collaboration with stakeholders.
4. Disseminate the updated procedures and provide any necessary training to
Program staff and partners.
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix G 
G-1
December 2024 
Appendix G to the Base Plan 
Acronyms and Terms 
This annex includes acronyms and terms used throughout the TEOP. 
Table F-1: Acronyms and Terms 
Acronyms
AAR 
After Action Report 
ARC 
American Red Cross 
ADA 
Americans With Disabilities Act 
AG 
Attorney General 
ARES 
Amateur Radio Emergency Services 
BIT 
Bureau of Information Technology 
BOC 
Bureau of Corrections 
BoO 
Base of Operations 
BRIC 
Building Resilient Infrastructure and Communities program 
CAD 
Computer-aided Dispatch 
CAP 
Civil Air Patrol 
CBRN 
Chemical, Biological, Radiological, Nuclear 
CFR 
Code of Federal Regulations 
COG 
Continuity of Government 
COOP 
Continuity of Operations 
CPG 
Comprehensive Preparedness Guide 
CST 
Civil Support Team 
DCE 
Defense Coordinating Element 
DEOC 
Departmental Emergency Operations Center 
DHS 
United States Department of Homeland Security 
DoD 
Department of Defense 
DLCA 
Department of Labor and Consumer Affairs 
DPNR 
Department of Planning and Natural Resources 
DPW 
Department of Public Works 
EAS 
Emergency Alert System 
ECC 
Emergency Communications Center 
EEI 
Essential Elements of Information 
EMAC 
Emergency Management Assistance Compact 
EMC 
Emergency Management Council 
EMS 
Emergency Medical Services 
EO 
Executive Order 
EOC 
Emergency Operations Center 
EOP 
Emergency Operations Plan 
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix G 
G-2
December 2024 
Acronyms
EOS 
EMAC Operations System 
EPA 
U.S. Environmental Protection Agency 
ESC 
Emergency Service Coordinator 
ESF 
Emergency Support Function 
ETA 
Estimated Time of Arrival 
FAR 
Finance, Administration and Recovery 
FCO 
Federal Coordinating Officer 
FEMA 
Federal Emergency Management Agency 
FLIR 
Forward Looking Infrared Radar 
FMA 
Flood Mitigation Assistance Grant Program 
GAR 
Governor’s Authorized Representative 
GIS 
Geographic Information Systems 
GVI 
Government of the Virgin Islands 
HAZMAT 
Hazardous Materials 
HHS 
Department of Health and Human Services 
HMGP 
Hazard Mitigation Grant Program 
HSEEP 
Homeland Security Exercise and Evaluation Program 
HSPD 
Homeland Security Presidential Directive 
IAP 
Incident Action Plan 
IC 
Incident Command 
ICS 
Incident Command System 
IMAT 
Incident Management Assistance Team 
IND 
Improvised Nuclear Device 
IPAWS 
Integrated Public Alert and Warning System 
ISB 
Incident Support Base 
IST 
Incident Support Team 
JFO 
Joint Field Office 
JIC 
Joint Information Center 
JIS 
Joint Information System 
LEGIT 
Legislature of the Virgin Islands 
LMR 
Land mobile radio 
LSA 
Logistical Staging Area 
LPG 
Liquefied Petroleum Gas 
MHADDS 
Division of Mental Health, Alcoholism and Drug Dependency Services 
MOA 
Memorandum of Agreement 
MOU 
Memorandum of Understanding 
MMI 
Modified Mercalli Index 
MPH 
Miles Per Hour 
NGO 
Non-Governmental Organization 
NAWAS 
National Warning System 
NCIRP 
National Cyber Incident Response Plan 
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix G 
G-3
December 2024 
Acronyms
NDRF 
National Disaster Recovery Framework 
NEMA 
National Emergency Management Agency 
NFIP 
National Flood Insurance Program 
NIMS 
National Incident Management System 
NIPP 
National Infrastructure Protection Plan 
NOAA 
National Oceanic and Atmospheric Administration 
NRF 
National Response Framework 
NTWC 
National Tsunami Warning Center 
NWS 
National Weather Service 
OSC 
On-scene Coordinator 
PA 
Public Assistance 
PAR 
Protective Action Recommendations 
PDRP 
Pre-Disaster Recovery Planning 
PETS 
Pets Evacuation and Transportation Standards 
PFO 
Principal Federal Officer 
PIO 
Public Information Officer 
POD 
Points of Distribution 
PPE 
Personal Protective Equipment 
PSA 
Public Service Announcement 
PSAP 
Public Safety Answering Point 
PTWC 
Pacific Tsunami Warning Center 
RDD 
Radiological Dispersal Device 
RCP 
Caribbean Regional Oil and Hazardous Substances Pollution Contingency Plan 
RMS 
Records Management System 
RMT 
Required Monthly Test 
ROC 
Regional Operation Center 
SAR 
Search and Rescue 
SME 
Subject Matter Expert 
SOG 
Standard Operating Guide 
SOP 
Standard Operating Procedure 
SPR 
State Preparedness Report 
STJ 
St. John 
STT 
St. Thomas 
STX 
St. Croix 
TCC 
Territorial Coordination Center 
TCO 
Territorial Coordinating Officer 
TDD 
Telecommunications Device for the Deaf 
TEOP 
Territorial Emergency Operations Plan 
TFWP 
Tsunami Focal Warning Point 
THIRA 
Threat and Hazard Identification and Risk Assessment 
HMRP 
U.S. Virgin Islands Hazard Mitigation Plan 
U.S. Virgin Islands Territorial Emergency Operations Plan 
Appendix G
G-4
December 2024 
Acronyms
TMA 
Territory Mutual Aid 
TTY 
Text Telephone Relay 
UC 
Unified Command 
USACE 
U.S. Army Corps of Engineers 
UAV 
Unmanned Aerial Vehicle 
US&R 
Urban Search and Rescue 
USCG 
United States Coast Guard 
USGS 
United States Geological Services 
USVI 
United States Virgin Islands 
UVI 
University of the Virgin Islands 
VDMT 
Volunteer Donations Management Team 
VIEO 
Virgin Island Energy Office 
VIODR 
Virgin Islands Office of Disaster Recovery 
VIDOH 
Virgin Islands Department of Health 
VIFEMS 
Virgin Island Fire and Emergency Medical Services 
VING 
Virgin Island National Guard 
viNGN 
Virgin Islands Next Generation Network 
VIPD 
Virgin Island Police Department 
VIPFA 
Virgin Islands Public Finance Authority 
VITEMA 
Virgin Islands Territorial Emergency Management Agency 
VOAD 
Voluntary Organization Active in Disasters 
VOIP 
Voice Over Internet Protocol 
WAPA 
Water and Power Authority 
WEA 
Wireless Emergency Alert 
WHO 
World Health Organization 
WMA 
Waste Management Authority 
WMD 
Weapons of Mass Destruction