Full text




(In Office and Remote)

Tuesday, December 8, 2020



9:00 a.m.

Presentation of Monitoring Reports:

3.5 – Protection of Assets

3.7 – Emergency Preparedness

*These times are estimates only and may fluctuate depending on length of

each discussion.











Board of County Commissioners 


County Manager 



Internal Monitoring Report – Management Limitations 


3.5 Protection of Assets 


October 21, 2020 


I hereby present my monitoring report on Management Limitation 3.5 – Protection of Assets.  This report is presented in accordance 

with the monitoring schedule set forth in the Board’s Policy Manual.  I certify that the information contained in this report is true 

and correct. 



Signed: _________________________, County Manager 

Date: ______October 27, 2020 _________ 














Overview ‐ 3.5 Protection of Assets 


Description: Within the scope of his/her authority in the County and given available resources, the County Manager shall not allow the 

County’s assets to be unprotected, inadequately maintained or unnecessarily risked.   


I report compliance based on the information that follows in this report. 


Accordingly, the County Manager shall not: 


3.5.1   Fail to have in place a Risk Management program that insures against property losses and against liability losses to 

Commissioners, staff and Douglas County to the amount legally obligated to pay, or allow the organization to be uninsured:   Against theft and casualty losses,   Against liability losses to Board members, staff and the organization itself in an amount equal to or greater than the average 

for comparable organizations, and  Against employee theft and dishonesty. 



Overview 3.5.1 

Description: Fail to have in place a Risk Management program that insures against property losses and against liability losses to 

Commissioners, staff and Douglas County to the amount legally obligated to pay or allow the organization to be uninsured. 


I report compliance with 3.5.1 based on the following:   

The County  has a risk manager on staff and insurance contracts  are in place to protect the County against insurable losses.   Primary and 

Excess Insurance programs are structured to maximize financial risk transfer to various insurers with prudent deductible levels to minimize 

annual premium spend.  Emerging risks are identified ongoing and appropriate insurance coverage(s) are purchased as needed.   During this 

reporting  period  Risk  Management  engaged  in  a  competitive  process  General  Liability,  Public  Officials  and  Law  Enforcement  liability 

coverage.  Additionally, Hail Parametric coverage was placed for the first time to address the financial risk regularly expended over summer 

and fall.   





I report compliance with and based on the following: 

In  conjunction  with  the  protection  granted  by  the  Colorado  Governmental  Immunity  Statutes,  Douglas  County  maintains  coverage  that 

meets or exceeds the coverage of comparable counties. 




I  report  compliance  with  based  on  the  following:   

The  County  maintains  a  crime  insurance  policy  on  all  employees.    Our  policy 

includes indemnification to elected officials; coverage for elected officials in lieu of a bond and social engineering or fraudulent instruction 

coverage with a sub‐limit: 














3.5.2  Allow un‐bonded personnel access to material amounts of funds, or fail to provide adequate insurance to protect against employee 

dishonesty and theft. 


I report compliance with 3.5.2 based on the following:   

Per Colorado Revised Statutes, in lieu of a bond for each elected official, a County may purchase crime insurance coverage to protect the 

people of the County from any malfeasance while the elected official is in office.  The County has crime insurance coverage in the amount of 

$2,000,000.  The crime policy is endorsed to extend coverage to elected and appointed officials.  This policy also provides indemnification to 









3.5.3  Subject facilities and/or equipment to improper wear and tear or insufficient maintenance (except normal deterioration and 

financial conditions beyond County Manager control). 


I report compliance with 3.5.3.   

Facilities, Fleet and Emergency Support Services staff use a maintenance tracking software program that identifies the following: 

Preventative maintenance schedule 

Work order processing 

Equipment historical information 

Maintain warranty and equipment specifications 

Warranty Services 


Additionally, Facilities and Fleet staff are trained and certified in the operations and maintenance of all County building equipment and 

vehicles.  Certifications for specialized disciplines are maintained in staff personnel records. 



3.5.4   Unnecessarily expose County government, the BOCC or staff to claims of liability. 


I  report  compliance  with  3.5.4  based  on  the  following:  

In  addition  to  the  protection  provided  by  the  Colorado  Governmental  Immunity 

Statutes  and  some  boundaries  established  by  federal  and/or  state  laws,  the  County  maintains liability  insurance coverage  that  meets  the 

appropriate liability levels.  The specific information for this coverage was covered in and above.  



In  addition  to  insurance  coverage,  the  County  mitigates  risk  through  a  variety  of  risk  control  measures  that  include  risk  avoidance,  loss 

prevention and loss reduction.  Examples of these include: 

Fifty‐six ergonomic work station evaluations/training/adjustments were provided via outside contractor. 

Ethics training provided to all employees (Human Resources). 

Cyber Security Training was offered to employees 

Building evacuations are conducted twice yearly for each County building. (Facilities in conjunction with OEM) 

Employee Safety and Security trainings are conducted throughout the year. 

Conduct pre‐employment background checks including but not limited to: reference checks, social security number validation and 

trace, criminal felony and misdemeanor search, national sex offender registry check and widescreen plus national criminal search. 

The County checks driver records annually for jobs that require a driver’s license.  

The  County  meets  the  federally  mandated  drug  and  alcohol  testing  requirements  of  employees  who  hold  Commercial  Driver’s 




County‐wide employee emergency notification system and update COOP. (OEM, HR, Facilities) 

Annual Sexual Harassment Training is conducted for all employees and supervisors. 

Utilize  HireRight  for  background  checks  –  best  in  class  vendor  for  electronic  background  checking  of  candidates.   Provides 

comprehensive social security number verification, court convictions/dispositions, and out‐of‐state information. 

Conducted I‐9 audit leveraging HireRight relationship 

Utilize SkillSurvey to improve the quality of preemployment reference checks. 

Provided  online  training  classes  and/or  in  person  sessions  for  Civil  Treatment  of  Employees  in  various  Elected  Offices  and 


Continued testing for opioids to the new hire pre‐employment drug testing panel. 

Offered Hepatitis A vaccine to inmate population and employees with potential exposure (April 2019) 

Review internal process for Mill Levy Certification – New 

Competitive process to improve LTD/Life Insurance premiums completed concurrently with request to outsource Leave of Absence 

(LOA)  administration.   Outcome  resulted  in  significantly  reduced  premiums  to  allow  for  zero‐cost  LOA  administration  and  greatly 

improved compliance with federal and state laws (ex. FMLA). 


The County mitigates risk through contractual transfer; and risk financing that includes adequate insurance and reserve levels.  The following 

is a sampling for this reporting period: 

All professional services contracts are reviewed by legal and risk management ensuring contract compliance and transference of risk, 

when necessary. 

Contracts  provide  protection  for  the  County  by  having  clauses  such  as  the  scope  of  services,  maximum  liability,  term,  conflict  of 

interest, indemnification, etc.  The insurance requirements in contracts are also identified. 

Any party that rents a County facility is required to have insurance. 

Actively investigates and pursues all subrogation possibilities. 



3.5.5  Fail to protect County data, information, and files from loss or significant damage. 


I report compliance with 3.5.5 based on the following: 

Audit  and  Assess:  After  completion  of  a  three‐year  initiative  to  assess  and  remediate  known  dangers  to  intellectual  assets  and 

private information, IT is enhancing and automating the County’s ability to react and respond to cyber risks. Through 2017 and 2018 

IT completed the process of automating patching and software deployments, introduced additional layers of cyber threat detection 

and  discovery,  and  has  introduced  third‐party  compliance  analysis  and  metrics.  This  compliance  analysis  provides  a  robust 

compliance state of the County for Criminal Justice Information System (CJIS) security, Health Insurance Portability and  




Accountability  Act  (HIPAA),  and  Colorado  House  Bill  18‐1128  Protections  for  Personally  Identifiable  Information  (PII).  A  2018 

assessment of PII within the County resulted in additional security controls for 54 identified locations for private data. 

Employee Training: IT initiated a County‐wide information security training program to raise awareness in all parts of the County on 

how  to  better  protect  the  County’s  information  and  intellectual  assets.   In  2017,  IT  implemented  the  KnowBe4  cyber  security 

training program to increase awareness and keep employees up to date as the threat landscape changes.  In 2018, IT introduced 

phishing attack simulations to further enhance employees’ capabilities to detect and respond to cyber threats. 

Security Built In: IT cyber security personnel are involved in IT operational and architectural activities in a position to influence those 

activities as necessary from a cyber security perspective.  This influence provides continuous dedication and vision for security within 

ongoing IT operations and planning. 

Monitoring: in 2020 IT has engaged a managed Cyber Security Operation Center service to monitor the County’s systems 24x7 and 

handle all cyber incidents, remediate IT risks, identify vulnerabilities and predict the cyber threat landscape based on set of industry 

standard intelligence resources.  

Recovery: IT maintains backup copies of software, program code and system data using a combination of onsite and offsite storage 

adjusted for the use profile of the individual systems.  In 2018, a Disaster Recovery site and program will be implemented to provide 

the ability to recover all Tier 1 assets within 24 hours of a major incident. 

Policy: The Douglas Employee Handbook, Email Use Policy and Internet Use Policy specify actions, responsibilities, and conditions of 

employment that govern the creation, storage, access, use, and security of County Information hardware, software, and data assets 

by employees.  IT keeps these policies and procedures up to date and communicates key changes when necessary.  

Physical Security ‐ the County’s facilities are protected in the following ways: 


Access to facilities is restricted using an access card system (approval required before access is granted).  


Buildings  are  monitored  electronically  and  physically  by  Facilities  Management  personnel  and  a  third‐party  monitoring 



Facilities Security Team composed of field technicians responsible for installation and maintenance of all security and access 

control systems.


Policy 3.5 Protections of Assets

Internal Monitoring Report


Board of County Commissioners


Lance Ingalls, County Attorney


Internal Monitoring Report – Executive Limitations


Policy 3.5 Protection of Assets – 2018 report


November 3, 2020

I hereby present my monitoring report on your Executive Limitation Policy 3.5: Protection of Assets presented in accordance with your monitoring

schedule set forth in the Board Policy Manual.

I certify that the information contained in this report is true.

Signed: ___Lance Ingalls_______, County Attorney

Date: October 30, 2020



A 3.5 Within the scope of his/her authority in the County, the County Attorney shall not fail to review and advise

regarding any legal issues that would allow the County’s assets to be unprotected, inadequately maintained or

unnecessarily risked.

I interpret “may not fail to review and advise” the same as in policy 3.2.

I interpret “legal issues that would allow the County’s assets to be unprotected, inadequately maintained or

unnecessarily risked” to mean that the County Attorney will keep the Board and the County Manager apprised of

any on-going or contemplated legal cases or claims.

I interpret “assets” as physical and intellectual property of the County with a value greater than $25,000. Also,

for individual issues with dollar amounts under $25,000 for which the County may be owed or be in a position to

recover a County asset, the County Attorney has the discretion to work with various department heads and EO’s

to take all reasonable steps to secure or recover such County asset.

The Board will be apprised of circumstances

when outside counsel is needed.

I interpret “unprotected, inadequately maintained or unnecessarily risked” to mean that assets would not have

adequate physical, procedural, or policy safeguards in place to reasonably prevent their theft or destruction. The

County will advise as appropriate when there is a known risk to County assets.


A 3.5 Within the scope of his/her authority in the County, the County Attorney shall not fail to review and advise

regarding any legal issues that would allow the County’s assets to be unprotected, inadequately maintained or

unnecessarily risked.

I report compliance.


The County Attorney's office advises the County in a variety of ways, each with an asset protection purpose. The County Attorney’s office has reviewed

more than 1500 Contracts so far this year, with only a handful of those NOT executed through DocuSign.

(1091+ contracts in 2019, 868 + contracts

in 2018, 780 + contracts in 2017, 761 + contracts in 2016, 680 + contracts in 2015, and 569 + in 2014.) Contract review ensures there are no

unnecessary risks to County property and service commitments.

Fraud Overpayment/Recovery-Human Services.

Collection Cases – Human Services—Pursuing collection efforts for individuals that have received overpayments of food assistance benefits procured

through fraud; continuing to coordinate with Human Services, but due constraints associated with CDHS and the courts in light of COVID-19, factors

outside of the county’s control, collection filings for overpayment are currently on hold.


Litigation Filed Against the County


E.M.M.: In response to an urgent request for assistance from the Kansas Department of Human Services, County Human Services and Deputies went

to a home where a woman and her children were fleeing from Kansas state authorities. The mother was ordered to leave the home and the children

were left in the custody of their friend, who returned them to Kansas. A prior suit was brought by different siblings against the same Defendants, which

ended with a dismissal of the siblings’ claims. The County filed a motion to dismiss, and the District Court granted the motion. Plaintiffs appealed

the dismissal to the Tenth Circuit. The appeal has been fully briefed and is awaiting a decision.

Pino: A County employee, driving a County owned truck, ran over a sign that had been knocked into the road earlier by a driver who had fallen asleep

at the wheel. The sign became airborne and hit the vehicle directly behind the employee. The driver of the vehicle hit by the sign and her minor son

sued the County employee and the driver who originally knocked the sign down for an unspecified amount of damages on behalf of herself and her

minor son. The County agreed to a nuisance value settlement ($2,500) pending approval by the Probate Court of the portion of that settlement allocated

to the minor son. A hearing in the Probate Court is set for November 2020.

Tillmon: Former inmate, now in state prison, filed a pro se lawsuit alleging racial discrimination, inadequate notice of disciplinary hearings and

inadequate medical care in violations of his Eighth and Fourteenth Amendment Rights. The County filed a motion to dismiss and received a

recommendation from the Magistrate Judge in favor of dismissal. The District Court Judge granted in part and denied in part the County’s motion to

dismiss. Plaintiff has been ordered to file an amended complaint at the beginning of December or risk the case being dismissed.

Ginther: Pro Se plaintiff seeking review of DCSO refusal to issue a concealed carry permit due to past incidents with law enforcement involving a

firearm. Though initial complaint and answer were filed, Mr. Ginther has taken no further action to pursue this case despite a court order to do so or

risk dismissal.

Hollister: Judicial review of DCSO denial of concealed carry permit due to a past incident with law enforcement. The record relied upon by the DCSO

was sealed by the court several years ago but is still specifically viewable to law enforcement. The Court previously ruled that the DCSO did not give


Mr. Hollister sufficient due process notice of the basis of its denial and remanded the matter back to the Sheriff to do so. The DCSO once again denied

the request, this time with more specificity, and Mr. Hollister has once more appealed. The matter is in the process of being briefed at the local district

court after which we will await another Court decision.

Ramsey: The County and the former medical vendor and numerous of its employees have been sued for violations of the Fourteenth Amendment

(failure to provide medical treatment and care) and medical and common law negligence. Plaintiffs seek compensatory, consequential and punitive

damages, attorneys’ fees, pre- and post-judgment interest, costs, and declaratory and injunctive relief. The County has filed a motion to dismiss the

municipal liability claim asserted against it. The motion is fully briefed and awaiting a decision by the Court.

Watkins: The County and three Sheriff’s deputies have been sued in conjunction with the deputies’ arrest of Mr. Watkins on a domestic violence

charge. Mr. Watkins alleges that the deputies violated his Fourth Amendment rights by illegally entering his home and using excessive force to arrest

him. Mr. Watkins has also asserted claims for municipal liability and supervisory liability arising out of the incident. The County filed a motion to

dismiss the complaint, which the Magistrate Judge has recommended granting in part and denying in part. The Plaintiff filed objections to the

Magistrate Judge’s recommendation, which have been fully briefed and are awaiting decision by the District Court Judge.

Carrasco: Jonathan Carrasco has filed a charge of discrimination against the Sheriff’s Office alleging that he has been discriminated against and

retaliated against on the basis of his race and ethnicity. He was recently the subject of an IA investigation after it appeared that he had

misrepresented being in Texas when he was called in to work. That charge was ultimately not sustained, but during the investigation, he admitted

that he had misrepresented having a family emergency to cancel an off-duty job, so he was sustained for a violation of the On- and Off-Duty Conduct

policy. Deputy Carrasco asserts that this and various other incidents over his four years with the Sheriff’s Office are discriminatory. DCSO filed a

response in September and is awaiting further word from the EEOC.

Litigation filed by the County


Sweet: Landowner is out of compliance with the County’s zoning code. A civil action has been initiated by the County to bring the property into

compliance. A hearing on the County’s motion for preliminary injunction has been set for November 2020, and the case has been set for trial in March


Lessar: Landowner is out of compliance with the County’s zoning code. The County filed a civil suit, and the Court entered a Preliminary Injunction

in August 2019. In September 2020, the Court granted a motion by the County to hold the Lessars in contempt for violating the Preliminary Injunction

and order the Lessars to pay a $50,000 fine which will be held in abeyance for 6 months but will become due immediately in the event of another



Property Valuation. Defense of 402 appeals filed to the Board of Assessment Appeals, to the District Court and for abatements and arbitration

appealing the valuations for 2019 taxes.

Investments. Review of investment policies to ensure legal compliance.

Public Trustee


Egbune – Bankruptcy attorney alleges, among many other things about other parties, that the court order foreclosing the property was unlawful

and that the Trustee failed to provide adequate notice and opportunity to cure the default on the debt prior to foreclosure. The Court ultimately denied

Mr. Egbune’s attempts to add the public trustee as a party but ruled the foreclosure sale invalid for failing to provide Mr. Egbune an opportunity to

cure. Since the Trustee is not a party it is unclear if this ruling will have any effect other than to restore, if only temporarily, the property to Mr. Egbune

and potentially require another future foreclosure sale should the lien holder continue to pursue it.




















Board of County Commissioners 


Douglas J. DeBord, County Manager 



Internal Monitoring Report – Management Limitations 



November 10, 2020 



I hereby present my monitoring report on Management Limitation 3.7 – Emergency Preparedness.  I certify that the information 

contained in this report is true and correct. 



Signed: _________________________, County Manager       

Date:   ____November 3, 2020____ 













Glossary of Acronyms 

AED    Automated External Defibrillator  AOP    Annual Operating Plan  BSSC    Building Safety and Security Committee  BCC    Board of County Commissioners  CSFS    Colorado State Forest Service  CEMP    Comprehensive Emergency Management Plan   COG    Continuity of Government  COOP    Continuity of Operations Plan  DCART         Douglas County Animal Response Team  DCES    Douglas County Emergency Services  DCSO    Douglas County Sheriff’s Office  DFPC    Colorado Division of Fire Prevention and Control  EDAR    Emergency Delegation of Authority Resolution  EMCG    Emergency Management Coordinating Group  EOC    Emergency Operations Center  EOP    Emergency Operations Plan  ERT    Emergency Response Team  ESF    Emergency Support Function  FEMA    Federal Emergency Management Agency  FFESS    Facilities, Fleet and Emergency Support Services  ICP    Incident Command Post  IGA    Intergovernmental Agreement  IMT    Incident Management Team  LEPC    Local Emergency Planning Committee  NOAA    National Oceanic and Atmospheric Administration  NFPA    National Fire Protection Association  OEM    Office of Emergency Management  PDCG    Partnership of Douglas County Governments  PIO    Public Information Officer  SARA    Superfund Amendments and Reauthorization Act  TTE    Tests, Training, Exercises  USDA    United States Department of Agriculture 






      4         3.7  The County Manager shall have an extensive Emergency Preparedness Process in place for improving coordination and strengthening relationships  among all emergency management partners – Federal, State and local governments, voluntary disaster relief organizations, and the private sector to  meet basic human needs and restore essential government services following a disaster.  This enhanced partnership will reduce human suffering and  decrease costly damages to property. 


I report compliance based on the information below. 


2020 Relationship Coordination and Strengthening in support of Emergency Preparedness and Management   

Douglas County Emergency Services (DCES):  This extensive and diverse group is responsible for working closely with each other as well as with all  external emergency preparedness and management partners at the local, state and federal levels; voluntary disaster relief organizations; the private  sector; and the first responders.   DCES includes  members from  Douglas County  Government and represents multiple departments, divisions, and  offices.     Office of Emergency Management   Emergency Incident Management   Citizen Preparedness Training    Coordinates Incident Management Team, DCSO Wildland Fire Hand Crew, Emergency Operations Center Team, Public Works Heavy  Equipment Team, Helicopter, Animal Response Team, and Emergency Services Unit    Incident Response Training and Exercises   Oversees writing of Emergency Plans and Resolutions   Local Emergency Planning Committee (LEPC) Coordination   Citizen Preparedness Guide      DCSO Patrol, Detentions, Dispatch, Communications    DCSO Wildland Fire Hand Crew   Incident Dispatch Team (IDT)   Evacuation   Reverse 911 Alerts     Facilities    Douglas County Fairgrounds – sheltering for evacuees and/or  their animals (large and small)   Storage and mobilization of shelter equipment needs   Emergency Operations Center maintenance   


      5          Fleet   Emergency Fleet Services   Fuel Support     Emergency Support Services   OEM Support Coordination   Plan and Resolution Writing Support    EOC Team Participation   Incident Management Team Participation   Emergency Management Training Coordination and Funding   Payment In Lieu of Taxes (PILT) Distribution   Employee Safety Trainings and Facility Security   Employee Workplace Safety Guide   Automatic External Defibrillator (AEDs)   Continuity of Operations Plan (COOP)   Employee emergency notification tool     Douglas County Board of County Commissioners and County Manager     Douglas County IT   GIS & C‐COP   Emergency Operations Center Team     Douglas County Traffic   Emergency signage     Douglas County Public Works Operations   Public Works Heavy Equipment Crew   Emergency Operations Center Team   Snow Plowing     Douglas County Finance   Emergency Operations Center Team    Incident Management Team     Douglas County Public Affairs    Emergency alert notification PSA   Employee alert notification via DCNET 


      6          Open Space   Iron Horse Open Space – sheltering for large animals   Rangers   Wildfire Mitigation Projects   Training Burns on Open Space parcels   

The  Emergency  Management  Coordinating  Group  (EMCG)  was  established  by  the  Partnership  of  Douglas  County  Governments  IGA and  encourages participation by all members who collectively coordinate emergency preparedness, response, recovery and mitigation activities.   The EMCG was expanded in 2013 to include all emergency management personnel and those with an EM interest county‐wide.  Meetings  occur quarterly. 


The  Local  Emergency  Planning  Committee  (LEPC)  is  a  planning  committee  that  includes  numerous  Douglas  County,  State  and  Federal  agencies with interests in the “administration of a program for the development of emergency response plans and systems and for requiring  certain facility reporting and notification regarding the listing or release of specified hazardous substances.”   In the 4th quarter of 2017 the  Douglas County LEPC and the Arapahoe County LEPC combined to create a joint Arapahoe‐Douglas LEPC.  

Douglas County Response Teams    

1) Douglas  County  Incident  Management  Team:    Douglas  County  maintains  a  Type  4  Incident  Management Team (IMT).  The team is in the process of transitioning to a Type 3 qualification and  is comprised of a combination of Douglas County employees, agency employees from our partner  local  governments,  and  volunteers.    The  team  has  a  supply  trailer  and  a  communication  trailer  that it manages and re‐supplies following an incident.  These trailers are mobile and can deploy  wherever  necessary.    A  dedicated  budget  for  training,  development  and  resources/supplies  in  support of the IMT mission exists to manage the team through the Sheriff’s Office.  The IMT was  created by the BCC on March 23, 2004 via Resolution R‐004‐036. 


In  July 2020  the Douglas  County  IMT  was mobilized  to support  the Chatridge 2 wildfire  which  burned 500 acres  and  threatened  the  Backcountry subdivision of Highlands Ranch.  The IMT was called in after the scope and complexity of this fire exceeded South Metro  Fire’s  capabilities  and  Douglas  County  received  a  Delegation  of  Authority  to  command  and  control  the  fire.   

2) Douglas‐Elbert County Animal Response Team (CART) is a collaborative team made up of volunteers from Douglas and Elbert Counties  and  coordinated  by  Emergency  Management.    This  team  is  comprised  of  over  125  volunteers  and  is  designed  to  assist  during  an  emergency  that  would  require  mass‐accommodation  for  large  and  small  animals.    This  includes  sheltering  of  all  types  of  animals  at  numerous pre‐identified locations.  In 2014, Douglas County entered into an MOU with the Denver Dumb Friends League (DDFL) for  sheltering assistance for small animals.  In 2015, Douglas County entered into an MOU with the Douglas‐Elbert County Horse Council  (DECHC)  for  large  animal  sheltering  during  emergency  disasters.    A  few  CART  members  are  also  responsible  for  staffing  the  DC  Emergency  Operations  Center  at  the  Animal  Issues  Desk  during  a  disaster  requiring  emergency  animal  needs.    The  Citizen  Disaster 


      7         Preparedness  Guide  was  also  updated  in  2018  to  include  a  section  for  Large  Animal  Emergency  Preparedness.    The  team  is  further  supported through the North Central Region (NCR) Animal Emergency Committee (AEC), comprised of five additional CARTs as well as  working closely with other CARTs state‐wide.  Continuing education classes are offered periodically throughout the region.  In January  of 2018, the NCR/UASI Animal Emergency Committee expanded its focus to include all aspects of Emergency Mass Care.  The Douglas‐ Elbert Animal Response Team coordinator has been Chair of the NCR Region AEC since 2015 and continues to oversee the Mass Care  Committee as Chair until the current term expires in January 2021.   

3) Emergency  Operations  Center  (EOC)  Team (using  Emergency  Support  Functions  positions):    90  individuals  have  been  identified  for  these  positions  within  the  EOC.  The  EOC  Team  is  comprised  of  members  of  the  Douglas  County  IMT  who  are  not  deployed  to  the  Incident  Command  Post  as  well  as  additional  individuals  recognized  as  subject  matter  experts  in  the  Emergency  Support  Function  positions. The EOC activated to a Level 2 Activation for the COVID‐19 Response in March of 2020 and lowered to a Level 3 – Monitoring  Status and continuing into November – marking the longest historical activation of the Douglas County EOC.  From July through October  2020, the EOC Logistics Section met regularly for specialized EOC Logistics training and practice and the development of a Virtual EOC  built  in  Microsoft  Teams.    On  October  21st,  2020,  the  EOC  Team  participated  with  the  State  EOC  Team  in  an  integrated  functional  exercise  designed  to  strengthen  EOC/SEOC  communications  and  to  test  the  new  Douglas  County  Virtual  EOC  environment.  These  trainings  and  exercise  provided  the  EOC  Logistics  Team  training  and  practice  using  the  EOC  Situational  Awareness  and  Resource  Ordering system in the newly developed Virtual EOC.  The EOC also activated in June to a Level 2 Activation in support of the Chatridge2  Fire.    4) DCSO Wildland Fire Hand Crew ‐ Wildfires are the number one natural hazard in Douglas  County. Under Colorado Revised Statute 30‐10‐513 the County Sheriff is responsible for  coordination of fire suppression efforts in the case of prairie, forest, or wildland fires or  wildfires occurring in the unincorporated area of the County outside the boundaries of a  fire protection district, or those that exceed the capabilities of the fire protection district  to  control  or  extinguish.  To  that  end,  the  Douglas  County  Sheriff’s  Office  formed  a  15‐ person  Wildland  Fire  Handcrew  (WFH),  supervised  by  the  Office  of  Emergency  Management.  The  WFH  serves  as  an  Initial  Attack  fire  suppression  resource  to  assist  other  county  agencies  that  do  not  have  the  resources  necessary  or  in  areas  that  the  Sheriff is the Fire Warden, or when their presence would greatly increase the ability to  suppress wildfires that are threatening life or property. Hand crews specialize in remote 

wildland  fires  that  engines  cannot  access.  Handcrews  utilize  chainsaws,  handtools  and  water  backpacks  to  extinguish  wildfires.  The  purpose of the WFH is not to supplement manpower of established fire districts on a regular basis, but to assist agencies as a Force  Multiplier during critical needs, and rural districts with limited staffing. Members of the WFH include DCSO Deputies, Dispatchers and  Detention Specialists.    In 2020 the WFH was called out to the Chatridge 2 to provide immediate handcrew suppression of this dangerous wildfire.  The WFH  responded during initial attack and was a critical resource in containing fire perimeter in steep drainages and thick brush where fire 


      8         engines couldn’t reach.  The WFH continued to support firefighting operations during extended attack in the following days to ensure  the fire remained in contained status.     5) DC PW Heavy Equipment Team – In 2013, this team was identified to support the Wildland Fire Hand Crew during the Black Forest Fire  to help cut fire lines, should the have fire encroached into Douglas County.  In 2014, 16 Public Works personnel were trained, certified  and outfitted for emergency fire response incidents within Douglas County.  The Office of Emergency Management and Fleet, Facilities  and Emergency Support Services continue to support this team and provide annual training.  This team maintains an active roster of 12‐ 15 personnel.  The PWOPS Heavy Equipment Team has been called upon for two wildfire activations where their equipment and skill  were utilized to safely extinguish fires while reducing exposure to handcrews.    

6) DCSO  Emergency  Services  Unit ‐  In  2015,  Douglas  County  funded,  through  Facilities,  Fleet  and  Emergency  Support  Services,  a  Temporary Limited Benefit, 4‐person All Hazard Mitigation Crew to answer the county’s need for hazardous wildfire fuels reduction and  all  hazard  incident  response  support.    The  Mitigation  Crew  utilized  trucks,  chainsaws,  skid  steers,  chippers,  trailers,  UTVs  and  other  assorted equipment to perform these tasks.  In 2016, the Mitigation Crew was converted to Full Time Employees and transferred to  DCSO, under the  management of  OEM.  During winter months, the  crew supports Public Works  by joining their ranks as  Emergency  Snow Plow Operators.  In the last quarter of 2019, the Mitigation Crew was reclassified and became the DCSO Emergency Services Unit  (ESU).  The new focus of the ESU is to patrol, prevent and respond to wildfires throughout Douglas County, as well as continue wildfire  mitigation efforts.  The ESU assists DCSO Patrol in responding to all manner of natural hazards and emergency incidents in addition to  wildfires.    In 2020, the ESU responded to 24 incidents within Douglas County including forest fires, grass fires and a natural disaster wind event  that blew down trees in the community of Louviers.  Utilizing their brush truck fire engine, the ESU was first on scene and successfully  suppressed numerous wildfires in 2020 ensuring they did not grow and become large, destructive fires like we saw in other parts of  Colorado.    The  ESU  was  also  critical  in  providing  mission  coordination  and  ground‐based  support  to  the  contract  Douglas  County  helicopter.  The ESU worked with Incident Commanders to ensure the helicopter was used safely, rapidly and effectively.    7) Workplace Safety Trainings: We plan to offer more trainings in 2019; employee engagement with the safety trainings has been all  positive and rewarding. Classes offered and completed for 2018:  a. Workplace Safety and Security   b. CPR/AED  c. Verbal Judo   d. Stop the Bleed   e. Fire Safety  f. Active Shooter    


      9         8) Emergency Response Coordinator (ERC):   The ERC role includes representatives from all Douglas County departments and facilities.  

This  person  serves  as  a  point  of  contact  and  reference  for  facilities’  safety  and  security.  In  addition,  they  help  to  coordinate  safety  trainings and disseminate important workplace safety information.   3.7.1  Have in place adequate plans to prevent and/or respond to emergencies and/or disasters.    3.7.2  Establish and maintain a Douglas County Emergency Operations Plan.    I report compliance.  In order to fulfill the Board Policy for 3.7.1, the Douglas County Emergency Support (DCES) staff  has developed the Comprehensive Emergency Management Plan (CEMP).  Components of the CEMP are in varying  degrees of completion and include:    1. Board of County Commissioners Policy Manual, as oversight (revised and adopted 3/16/2010)  2. Partnership of Douglas County Governments Mutual Aid and Mutual Resource Sharing IGA (adopted 8/23/11)  3. Open Fire Ordinance Revision (revised and adopted 12/3/12)  4. Disaster Emergency Finance Policy (revised and adopted October 2018)  5. Emergency Delegation of Authority Resolution (revised and adopted 9/27/16)   6. Emergency Operations Plan (revised and adopted 9/27/16 and currently being upated)  7. Douglas County Emergency Sheltering Operations Plan (finalized 3/13/17)  8. Rapid Needs Assessment Annex and Damage Assessment Annex to the EOP (finalized 2017)  9. Annual (Wildfire) Operating Plan (revised and adopted annually)   10. Continuity of Operations Plan (introduced October 2017 – ongoing updates)   11. Debris Management Plan (Approved December 2018)    12. Resource Mobilization Annex to the EOP (updated 2018)  13. Cooperative Wildfire Protection IGA between Douglas County and the State of Colorado (revised and adopted 2019)  14. Emergency Fire Fund IGA between Douglas County and the State of Colorado (revised and adopted 2019)  15. All Hazards Evacuation, Alert & Warning Annex to the EOP (updated 2019)  16. County Facility Active Threat Annex (currently in progress)    2020 Emergency Preparedness & Management Trainings & Exercises   Response Team Trainings (IMT)   EOC Team Trainings   DCSO Command Staff Training   Wildland Fire Hand Crew Field Training (30‐Hour Critical Fire Training Refresher, bi‐weekly recurrent training)   Evacuation Drills with community of Perry Park.   Joint EOC Exercise between the Douglas County EOC and the State EOC.   


      10         2020 Emergency Preparedness & Management Activities:  1. Continued active wildfire mitigation projects on County property and incident response  2. PIO coordination with all response partners  3. Collaborative media releases and expansion of Social Media through OEM Twitter and Facebook accounts  4. Front Range Fire Manager Officer meetings  5. State Wildfire Advisory Committee  6. State Wildfire Matters Committee  7. DFPC Stakeholder Strategic Planning Committee  8. North Central Region Board meetings  9. Statewide EOC and IMT Committee  10. Douglas County Fire Chiefs Association  11. Ambulance licenses  12. Local Emergency Planning Committee (LEPC) for hazardous materials  13. Emergency Management Coordinating Group  14. Douglas County Wildland Coordinators Group  15. Colorado Emergency Manager’s Association Conference  16. Expanded and coordinated citizen outreach – PSAs, preparedness trainings  17. Communication capability expansion for Emergency Radio Towers – improvement for VHF, 800mghz, ARES  18. Combined Douglas and Arapahoe County LEPCs  19. Involvement with the Wildland Fire legislation   20. Wildland Fire Hand Crew development  21. Emergency Services Unit development  22. Public Works Heavy Equipment Team development   23. State Aircraft Program participation  24. Continued EOC Team targeted recruiting and development of EOC Management Operations  Structure   25. Continuation of Type 3 Certification for IMT    2020 Emergency Preparedness & Management Initiatives  o Support Public Works snow operations with the ESU  o Continue to coordinate and collaborate in and among all DC Emergency Service Staff  o Expand partnerships with helicopter providers  o Emergency Plan revisions as needed for EOP, AOP, COOP  o Ongoing training and development for IMT, EOC Team, DECART, DCSO Wildland Fire Hand Crew, Public Works Heavy Equipment Team   o Emergency Preparedness Training for DC employees and citizens  o Continued participation for EMCG, LEPC, and other county‐wide emergency management‐focused groups  o Continue to promote the CodeRED notification sign‐up by citizens.  Participation rates have been rising steadily since 2011.  





3.7  The County Manager shall have an extensive Emergency Preparedness Process in place for improving  coordination and 

strengthening relationships among all emergency management partners – federal, state and local governments, voluntary disaster relief 

organizations, and the private sector to meet basic human needs and restore essential government services following a disaster.  This 

enhanced partnership will reduce human suffering and decrease costly damages to property.   

County Manager’s Interpretation


I interpret “an extensive Emergency Preparedness Process” to include all County Emergency Preparedness and Management partners ‐ 

public, private, and volunteer ‐ for the purpose of Emergency Preparedness and Management of Emergency/Disaster incidents that 

exceed an individual partner’s ability to overcome an event through their normal operating resources. 


3.7.1  The County Manager shall not fail to:  Have in place adequate plans to prevent and/or respond to emergencies and/or disasters. 

County Manager’s Interpretation:    

I interpret that an adequate plan to prevent and/or respond to emergencies and/or disasters is one that is derived through 

collaboration with the assistance and guidance of the County’s Emergency Management Partners; in which the effective management 

of all possible forms of disasters and emergencies has been addressed; in which all appropriate personnel have received adequate 

training; and which will allow the County to minimize human suffering and decrease costly damages to property.  


3.7.2  The County Manager shall not fail to:  Establish and maintain a Douglas County Emergency Operations Plan (EOP).  

County Manager’s Interpretation:    

The Emergency Operations Plan was revised in 2016 and has been updated by staff and multitude of agencies including towns, fire and 

police departments, special districts (school district, library, metro) and appropriate private and nonprofit organizations.  Additional 

input is included from lessons learned during live emergency/disasters, training, and exercise activities. 


The EOP will continue to evolve, reflecting lessons learned from actual experience during disasters and ongoing department and agency 

planning, training, and exercise activities.  This manual shall be updated and revised as is necessary by the Emergency Management 

Director with the help of county departments and offices and all the county’s emergency management partners (including towns, fire 

and police departments, the School District and appropriate private and nonprofit organizations). 




Internal Monitoring Report


Board of County Commissioners


Lance Ingalls


County Attorney


Internal Monitoring Report – Executive Limitations


Policy 3.7 – Emergency Preparedness


November 10, 2020

I hereby present my monitoring report on your Executive Limitation

Policy 3.7:

Emergency Preparedness

presented in accordance

with your monitoring schedule set forth in the Board Policy Manual.

I certify that the information contained in this report is true.

Signed: ___

Lance Ingalls

___, County Attorney






A 3.7 The County Attorney shall not fail to legally review and advise regarding the County Manager’s Emergency

preparedness Process and plans for compliance with State and Federal laws and regulations.

County Attorney’s Interpretation:

I interpret “shall not fail to legally review and advise” to mean that the County Attorney will advise the County

Manager of any legal issue or concern regarding the Emergency Operations Plan (currently known as the Incident

Management Guidelines and Standards –IMGS) – which is an evolving document compiled in cooperation with

numerous Douglas County agencies and departments. This manual outlines and details how DC public safety

agencies implement life and property saving actions when a major disaster or emergency challenges the ability of

Douglas County government and other governmental agencies to respond effectively to save lives; protect public

health, safety and property; and restore communities. This EOP describes the policies, planning assumptions,

concepts of operation, responses and recovery actions, and responsibilities of DC departments and agencies that

guide operations following a major disaster or emergency. The County Attorney shall review and participate in

the preparation of the EOP and its supporting documents for legal compliance with all relevant laws and


The County Attorney further understands that the EOP will continue to evolve, reflecting lessons learned from

actual experience during disasters and ongoing department and agency planning, training, and exercise

activities. This manual is intended to be updated and revised as is necessary by the Emergency Management

Director with the help of county departments and offices and all the county’s emergency management partners

(including towns, fire and police departments, the School District and appropriate private and nonprofit


The County Attorney shall review and participate in the preparation of all subsequent

amendments to the EOP and its supporting documents for legal compliance with all relevant laws and

regulations of which the County Attorney is made aware.


I report compliance with 3.7:

The County Attorney's Office works directly with other county staff assigned to emergency management issues to review

the EOP, mutual aid IGAs with other jurisdictions within the state and the Federal Government, and special vendor contracts

specifically dealing with emergency management needs. This year was a slower year than in the recent past, as not all

plans need complete updates every year.

When needed, the Attorney's Office helps the Sheriff's Office and Director of Emergency Management, Tim Johnson in

editing the delegation of authority process, in the formation and modification of the Emergency Disaster Authorizations

Resolution (EDAR) and in the formation of their disaster finance policy which is included in the EOP. In addition, the

Deputy County Attorney has in the past sat in bi-monthly meetings with both the Sheriff's Office and Director of Emergency

Management to provide legal guidance and remain current on events that may affect the County. This cooperation has

always worked well.

The County Attorney's Office reviews a variety of IGA's and MOU's for mutual aid in the event of an emergency, including

agreements with state and federal law enforcement and fire protection agencies, as well as agreements securing local

resources. Examples include the U.S. Forest Service Annual Operating Plan, a multi-jurisdictional Cooperative Wildfire

Protection IGA, emergency housing IGAs, and the County's helicopter contracts for fighting wildfires.





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