FY 2012 Budget Presentation by VITEMA Director Elton Lewis

Hearing of the Committee on Finance
Earle B. Ottley Legislative Hall, St. Thomas

August 9, 2011

I am Elton Lewis, Director of the Virgin Islands Emergency Management Agency (VITEMA). Accompanying me here today, is Mr. Noel Smith, Assistant Director of VITEMA, Ms. Debra Henneman-Smith, Deputy Director for Administration and Finance, Mr. Clement “Cain” Magras, Chief Financial Officer and the Governor’s Authorized Representative (GAR), Ms. Jonetta Darden, Deputy Director for Grants Management, Mr. Al Javois, Deputy Director for Preparedness, Ms. Christine Lett, Public Information Officer and Mr. Asim Frett, Chief Systems Manager.

Before I continue I want to take this opportunity to publicly thank my staff for their dedication to ensuring VITEMA meets the mission of this Agency. I also want to express my appreciation to all first responders, the Emergency Service Function Points of Contact (ESF POCs), the Emergency Management Council, the members of Rescue on all four islands, CERT (Community Emergency Response Team), public-private sector, the American Red Cross, The American Legion, the Amateur Radio Club of the Virgin Islands and all of the individual volunteers in our community. They all support VITEMA’s mission and we appreciate their commitment to preparing our community for all hazards and for their service in making our community safer and recovery faster. And I express my appreciation to Governor de Jongh and Lt. Gov. Francis for their support and commitment to the people we serve and to the Legislature of the Virgin Islands for their support in Emergency Management initiatives.

Today I will provide you with an overview of the agency, first describing VITEMA’s mission, functions and goals, and then summarizing our accomplishments for FY 2011 and initiatives for FY 2012.

VITEMA’s primary mandate, pursuant to Title 23 Chapter 10 (Act 7074), is to ensure and provide clear direction, coordination and support to all agencies directly or indirectly involved in the preparedness and response readiness of the entire territory. This includes the efficient distribution of federal assets made available as well as for training personnel in all aspects of Emergency Management and Homeland Security.

VITEMA’s mission is to prepare for, to coordinate the response to; and recovery from all hazards and threats that may impact the Virgin Islands. VITEMA’s strategic goal is to have a prepared, coordinated response and recovery. This Agency is committed to providing a coordinated and measurable service to the citizens of the Virgin Islands. Our performance goals include elevating awareness, creating effective response network partnerships and restoring the territory to its pre-disaster condition after an event.

VITEMA’s primary role is, as a coordinating agency, to assist in reducing the vulnerability of our people and communities to damage, injury and loss of life and property resulting from natural or man-made catastrophes. One of the ways we do this is by preparing and executing a comprehensive Territorial Emergency Operations Plan (TEOP), and through educational programs and training for emergency management personnel and first responders in the US Virgin Islands as well as providing information to the community to better prepare our populace. More recently, as a result of Act 7074, the Emergency Management Act of 2009, VITEMA has the responsibility for providing an efficient and effective 911 emergency communication system.

We are here today in support of VITEMA’s Fiscal Year 2012 budget request of $10,448,100 consisting of $4,948,675 from the General Fund and $5,499,425 from Federal grants. Of the amounts cited above for Federal grants, however, the amount of $3,000,000 is considered “pass-through” capital outlays for WAPA Hazard Mitigation projects throughout the territory. The total operating budget for VITEMA, therefore, is $7,448,100 for Fiscal Year 2012.

VITEMA has 91 positions funded including 74 under the General Fund and 17 federally funded. Of the 74 funded by the General Fund, 47 are 911 positions with 22 on St. Croix and 23 on St. Thomas plus two (2) district managers. This represents a reduction of five (5) positions since FY 2011. We are able to sustain this reduction because we are instituting a change from a 12 hour shift to an 8 hour shift which results in cost savings of $209,000.

Total general fund personnel costs projected for VITEMA for FY 2012 are $2,712,162 and $1,062,673 for fringe benefits. Additionally we have $782,233 federally funded personnel costs with an additional $301,264 for fringe benefits. 

Currently, VITEMA is in the process of filling three manager positions, one for each island’s Emergency Operations Center. These are among the most critical positions at VITEMA not only in the event of a disaster but also throughout the entire year as the EOCs are operational with training, exercises, Emergency Management and Homeland Security Council meetings, Emergency Support Function-Points-of-Contact meetings and other interagency meetings.

I am also pleased to report that all our WAPA bills are current, as well as those to Innovative, and other vendors with whom VITEMA does business. I intend to keep it that way. Noting the fiscal constraints of the Virgin Islands government, VITEMA has also taken steps to curtail spending by reducing inter-island and off-island travel, minimizing consumption of gasoline and drastically reducing the number of personnel who are issued cell phones. A number of vehicles have been taken off the roads and I am limiting the number of employees with access to vehicles on a 24 hour basis unless VITEMA is activated. Additionally, VITEMA is working with our air conditioning vendor to install timing devices to raise the temperature at night when the building is vacant and lower it in the early morning. These actions have reduced our electricity and other operating expenses. 

The drive to achieve our ambitious objectives defined a demanding Fiscal Year 2011 for VITEMA. The Agency has made notable progress in strengthening its readiness for all types of hazards during FY 2011. We significantly expanded the Territory’s early warning capabilities and made major advances in our strategic planning for catastrophic events. Throughout the year, we exercised and tested our capabilities, and provided emergency response personnel with vital training in incident management. VITEMA continued to build partnerships with the private sector, ensured that requirements to receive Federal grants were met and worked throughout the fiscal year to maintain strict fiscal control of our budget.

In October, Governor de Jongh signed the new Virgin Islands Territorial Emergency Operations Plan (TEOP), which outlines emergency response concepts with appendices detailing emergency response for each hazard faced by our community. The Territorial Emergency Operations Plan is a guide to how the Virgin Islands conducts responses to all types of hazards and aligns key roles and responsibilities – linking all levels of government, nongovernmental organizations, Independent Instrumentalities and the private sector.

Today, all of the local government agencies that respond to emergencies have a manual with guidelines that they can refer to. More importantly, the plan is built on the National Response Framework and the National Incident Management System (NIMS), which provide consistent templates for managing incidents and reflect the national standard and best practices in the management of incidents.

The Territorial Emergency Operations Plan (TEOP), referred to in Act 7074 as VITEMP, is the keystone to our emergency response operations and its revision and renaissance signal a major advancement in how the Territory manages all hazards incidents. While Federal and state governments across the US developed new and uniform national standards for managing incidents in the aftermath of the 9/11 terrorist incidents, the Territory’s emergency operations plan had not been updated since 1997. 

In addition, in July of this year I approved the final draft of the Virgin Islands Tsunami Incident Plan, which will be added as an Annex to the Territorial Emergency Operations Plan. No such plan existed prior to this and its completion is another milestone in our planning efforts. 

The “new” VITEMA is on the brink of becoming one of the leading emergency management agencies in the Caribbean and the nation.

The Tsunami Incident Plan establishes guidelines for VITEMA and other primary emergency response agencies to utilize in an effort to minimize the potential for loss of life from a tsunami incident. It provides guidance on how we can provide timely, accurate, reliable, and effective tsunami information and support to at-risk populations, government agencies including schools and other organizations and institutions within the Territory on a timely basis. As part of the development process, a team of planning consultants hired by VITEMA, spent several weeks meeting and gathering pertinent data from various local government agencies, key infrastructure officials, field experts, and the University of the Virgin Islands. This project was funded by the Public Finance Authority.

Planning for the possibility of a tsunami remains a top priority for VITEMA especially in light of recent tsunami disasters worldwide and most recently in Japan. We are all aware that the Virgin Islands are located in one of the most active seismic zones in the world and have experienced historically recorded tsunamis. In addition to the Tsunami Incident Plan, VITEMA has been actively strengthening its early warning capabilities.

In November, VITEMA purchased a modern tsunami siren warning system to blanket the Territory’s coastline. The initial focus has been to place sirens in tsunami prone areas that are highly populated. This system is a part of the comprehensive strategy we are implementing to be sure that our citizenry receive maximum warning and opportunity to make themselves safe prior to or during any emergency event. In June of this year, the Agency completed the first of two phases of the Tsunami Siren Warning System Installation Project. Sirens have been installed at four sites each on St. Croix and St. Thomas and two on St. John. On St. Croix, the sirens are located at the D.C. Canegata Ball Park, the Christiansted Government Parking Lot, near the Legislative Building in Frederiksted and on Emancipation Drive in Frederiksted. On St. Thomas the sirens are located at the Cyril E. King Airport, Emile Griffith Ballpark, the Yacht Haven Sugar Mill, and at the Red Hook Marina. The two sirens on St. John are in Cruz Bay next to the Legislature building and at the Fire House in Coral Bay. All of the locations can be viewed on our website www.VITEMA.gov which we encourage all public officials and the general public to visit regularly to be updated on current weather and preparedness information available.

We would like to remind this body and the general public that at 10 a.m. on Thursday, August 11th, VITEMA will conduct the first operational test of the sirens on all three islands simultaneously. Those within 1,000 feet or more of the sirens will hear both tone and voice tests, and we ask that you let us know what you heard. Visit our website and fill out our survey, post it on our Facebook page, Tweet us at READY-USVI or call us.

The second phase is scheduled to begin by September at 14 additional locations across the Territory. VITEMA also is currently conducting the final assessments of locations for placement of tsunami evacuation route signage paid for with federal funds.

The Tsunami Incident Plan, in conjunction with the recent installation of the Tsunami Siren Warning System, the soon-to-be installed evacuation route identification signage, and an effective public education campaign, brings the Virgin Islands much closer to achieving the Tsunami-Ready status, which is our ultimate goal. “Tsunami Ready” is a recognition given by the National Oceanic and Atmospheric Administration (NOAA), once certain criteria have been met, such as implementing a redundant warning system and creating a Tsunami Plan.

Finally, in May of this year, we successfully updated the Territorial Hazard Mitigation Plan, identifying steps that can be taken to mitigate hazards that can cause or exacerbate emergencies or disasters. The Territorial Hazard Mitigation Plan is critical to qualifying for federal hazard mitigation and public assistance grant funding from FEMA and every state and territory is required to update its plan every three years or lose access to all FEMA funding after a disaster. To ensure that we met this mandate, VITEMA created Hazard Mitigation Committees on St. Croix, St. Thomas and St. John and held hearings territory-wide to gather input from the general public. The results of the hazard identification process and discussions revealed that drought, rain-induced landslides and wildfires needed to be included in the updated plan. The plan update was funded with a grant from FEMA for which VITEMA qualified.

With Governor de Jongh’s signature of approval, the updated Territorial Hazard Mitigation Plan was submitted to FEMA in April. FEMA approved the plan on May 26, which means the Virgin Islands will maintain its eligibility to receive various disaster assistance grants including Public Assistance, Fire Management Assistance, Hazard Mitigation and Flood Mitigation.

The Hazard Mitigation Grant Program (HMGP) provides funds to the local government to implement long-term hazard mitigation measures after a major disaster declaration in order to reduce the loss of life and property in future disasters. As a result of Hurricane Omar, which struck in 2008, $1.2 million in hazard mitigation grant funding has been awarded to the Territory and made available to various government agencies and the American Red Cross for the installation of hurricane shutters and to the VI Port Authority to mitigate flood and windstorm damage at its facilities. The Territory qualified for these grants because we had a Hazard Mitigation Plan in place at the time we applied. An additional $500,000 in grant funding is anticipated for mitigation projects associated with damages caused by Hurricane Earl and tropical storms Otto and Tomas. These funds can only be used for hazard mitigation projects.

VITEMA has also been able to capture competitive Hazard Mitigation Grant (Pre-Disaster Mitigation Grants) grant funding. Ongoing projects under these competitive grants includes the VI Water and Power Authority Electric Underground Project, which involves burying cables to our major critical facilities such as hospitals, airports, commercial districts, and university facilities. This project will significantly reduce our electrical downtime after hurricanes and major disasters in the future. Phase One of the Christiansted Underground project has now been completed and Phase Two is about to begin. A similar project at the Charles Harwood Facility is also now complete and the downtown St. Thomas project is almost ready to begin. Underground electrical capability already exists to UVI on both islands, airports on both islands and hospitals on both islands – all funded by FEMA and administered by VITEMA. We are currently working with the Waste Management Authority to prepare a grant application for one of their projects to be funded through this program.

VITEMA, as a policy, conducts exercises to test the readiness of its emergency operations centers and other government agencies territorially throughout the year. During FY 2011, VITEMA conducted several exercises, including one full scale exercise to test our response to a terrorist incident. 

On December 9th, 2010, VITEMA held a territory-wide full-scale exercise that was developed to test the Territory’s communications capabilities, Emergency Operations Center management, emergency triage and pre-hospital treatment, onsite incident management and weapons of mass destruction (WMD)/hazardous materials (HazMat) response and decontamination capabilities. Simulated terrorist incidents on St. Croix and St. Thomas established a learning environment for multiple local and federal government agencies to exercise emergency response plans, policies, and procedures. Planners and participants included representatives of VITEMA, VI Fire Service, VI Port Authority police, VIPD, the VI National Guard 23rd Civil Support Team, U.S. Customs and Border Protection, Schneider Regional Medical Center, Governor Juan F. Luis Hospital, FEMA, U.S. Coast Guard, and the FBI.

On March 23rd, 2011, VITEMA in collaboration with local broadcasters conducted the first demonstration of the Territory’s new Emergency Alert System (EAS) as part of our participation in the National Oceanic and Atmospheric Administration’s (NOAA) annual Caribbean-wide Tsunami Exercise. The purpose of the demonstration included determining the readiness and effectiveness of the system and making any necessary improvements or adjustments. 

To the extent that it provided VITEMA and local broadcasters with a better picture of the current Emergency Alert System, identified glitches in our notification strategies, and established a baseline for future demonstrations — the demonstration was a success. Approximately 12 broadcasters participated. Our goal is to develop a robust Emergency Alert System to address the segment of the local population, including senior citizens, that continues to rely on radio and television to receive emergency information. Improvements to the VI Emergency Alert System Plan are ongoing.

I would like to take this opportunity to also update you on improvements to VI Alert, the Territory’s mass alert and notification system. VI Alert is currently undergoing its third iteration, Version 3, and will soon feature an iPhone application and enhancements to improve our call-down to emergency responders, and will also allow us issue alerts and notifications in multiple languages if translators become available to the Agency.

VI Alert, which issues alerts and notifications via cell phones, land lines and e-mail, remains the most expedient method for us to provide life safety information to the public and I urge anyone who has not done so, to register for this free service at VITEMA.gov.

Other exercises conducted by VITEMA include an Education Table Top Exercise to assist education officials with fortifying their school disaster plans, and a US Coast Guard Maritime Exercise to identify gaps as they pertain to the Maritime Firefighting Plan and the Area Maritime Security Plan for the Virgin Islands and Puerto Rico.

The agency also initiates training to increase preparedness in all aspects of emergency management and homeland security. During the last fiscal year, VITEMA provided numerous training opportunities for emergency management responders, law enforcement personnel, firefighters, and hospital staff, including the following courses: National Incident Management System, Introduction to Incident Command System, Weapons of Mass Destruction (WMD) Risk Assessment training, Wide Area Search and Rescue, Incident Terrorist Bombings and Prevention, and Response to Suicide Bombing Incidents.

As the emergency management agency for the Virgin Islands, our mandate is also to prepare our citizens for all hazards. This year we re-energized the Community Emergency Response Team (CERT) program in the St. Thomas-St. John district and launched a Teen CERT pilot program on St. Croix. In the event of a major disaster where roads may be impassible, first responders may not be able to respond immediately to calls for emergency assistance. The CERT and Teen CERT program trains citizens in basic disaster response skills so they can assist in their neighborhoods, workplaces and schools following an event when professional responders are not immediately available to help.

VITEMA in partnership with Search and Rescue trained and certified more than thirty (30) participants in St. Thomas and a class of twenty-seven (27) St. Croix Seventh Adventist High School students on St. Croix. Participants dedicated 20 hours to learning a range of disaster response skills, including fire suppression, light search and rescue, and CPR. The trainings culminated with mock full-scale exercises that tested all of the skills learned in the classroom and during hands-on training. As certified CERT members, they are a part of the emergency management family and will be called on to take a more active role in emergency preparedness projects in their districts.

In addition to CERT training, in June VITEMA hosted the 2011 Annual All Hazards Preparedness Expos on St. Croix and St. Thomas to heighten awareness of being prepared. More than 20 agencies, representing the local and federal government, voluntary organizations and the private sector participated in this event. Hundreds attended on each day and VITEMA itself used the opportunity to disseminate preparedness information and to encourage citizens to register for VI Alert.

We would like to note that our state-of-the-art equipment in 911 emergency communications and emergency operations centers performed optimally throughout the year and maintained connectivity during last year’s storm events. An important I-T enhancement this year is the completion of technological improvements to our VI Fusion Center. The Fusion Center was created to give local and federal law enforcement agencies the ability to co-locate in a secure environment, to gather and share intelligence data. Our IT section has successfully configured the VI Fusion Center to receive and view intelligence data. All of the data received can be viewed on monitors within the center but is housed on a remote server and cannot be downloaded or saved to a desktop or laptop. This is critical to safeguarding the data the center receives and brings us one step closer to becoming the first Fusion Center in the region to receive US Department of Homeland Security certification.

Finally, we also spent much of FY 2011 continuing to revise our federal grants management procedures and internal controls to insure efficiency and accountability; and to revise and update our hazard mitigation plan and our territorial emergency operations plan. Over the years, the Office of Homeland Security — now integrated with VITEMA to enhance accountability and oversight — has been audited a number of times as part of the Single Audit of the VI Government and by the US Department of Homeland Security. There were numerous findings resulting in questioned costs and reflecting poor compliance with grant terms and conditions. VITEMA, working closely with the Department of Homeland Security/FEMA grants management team, has initiated corrective actions to improve our management of these and all grants VITEMA receives. I am pleased to say that recent reports indicate significant improvement in grants management and accountability.

During last year’s budget hearing, VITEMA reported that it had achieved another milestone when we successfully closed out Hurricane Hugo Disaster Assistance after 21 years. The Agency drew down the last outstanding funds of almost $ 1 million and distributed it to the eligible recipients who had been waiting for this final payment. Today, I am happy to report the closeout of several other storms. As of July 31, 2011, VITEMA can officially report the final closeout of Hurricane Bertha, Hurricane George, and Hurricane Lenny by FEMA. These storms had remained open since 1996 and through the extraordinary efforts of our staff we have supplied FEMA with the necessary documentation to close these storms permanently. It is a feat of gigantic proportions for us and the staff involved in every aspect of this endeavor must be congratulated. We are working diligently to close the disasters known as the 2003 Flood Event and the 2004 Tropical Storm Jeanne. There are still some major hurdles to cross in order for us to close Hurricane Marilyn but we are working with FEMA to resolve these obstacles too.

As we look ahead to 2012, our goals are to continue strengthening our strategic planning and response capabilities for all hazards, building on our technology and ensuring we meet Federal requirements to secure much-needed grant funding. We have initiated work to have the RFP issued by the Department of Property and Procurement for the architectural and engineering design for the Hermon Hill facility on St. Croix with the funds appropriated in the current budget. When the government’s financial condition improves, we will be in a position to proceed with construction if bond monies are made available for this purpose. As you know, our facility in Hermon Hill is currently unfit for occupation due to mold, leaking and other problems. In January 2011, VITEMA’s staff moved to a temporary location in downtown Christiansted which we share with BIT.

Mr. Chairman, I hope this testimony has provided the committee with justification for VITEMA’s Fiscal Year 2012 budget request. I also take this opportunity to request that this budget request be granted in lump sum to allow us the flexibility to manage effectively and be responsive to our regular and emergency responsibilities within the limitations of the available financial resources of our government. As VITEMA improves its performance and coordinates services to reduce response times, and as our community is better informed, prepared and alerted, VITEMA will better serve our community before, during and after emergencies. VITEMA, like you, is committed to providing quality response services and to protecting the security of our homeland.

Thank you for this opportunity to present our budget request and my staff and I are available for your questions.

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