U.S. Fire Administration/Technical Report Series

Industrial Plastics Fire:

Major Triage Operation

Flint Township, Michigan

USFA-TR-025/November 1988

Homeland

Security

U.S. Fire Administration Fire Investigations Program

T

he U.S. Fire Administration develops reports on selected major fires throughout the country. 

The fires usually involve multiple deaths or a large loss of property. But the primary criterion 

for deciding to do a report is whether it will result in significant “lessons learned.” In some 

cases these lessons bring to light new knowledge about fire--the effect of building construction or 

contents, human behavior in fire, etc. In other cases, the lessons are not new but are serious enough 

to highlight once again, with yet another fire tragedy report. In some cases, special reports are developed to discuss events, drills, or new technologies which are of interest to the fire service.

The reports are sent to fire magazines and are distributed at National and Regional fire meetings. The 

International Association of Fire Chiefs assists the USFA in disseminating the findings throughout the 

fire service. On a continuing basis the reports are available on request from the USFA; announcements of their availability are published widely in fire journals and newsletters.

This body of work provides detailed information on the nature of the fire problem for policymakers 

who must decide on allocations of resources between fire and other pressing problems, and within 

the fire service to improve codes and code enforcement, training, public fire education, building 

technology, and other related areas.

The Fire Administration, which has no regulatory authority, sends an experienced fire investigator 

into a community after a major incident only after having conferred with the local fire authorities 

to insure that the assistance and presence of the USFA would be supportive and would in no way 

interfere with any review of the incident they are themselves conducting. The intent is not to arrive 

during the event or even immediately after, but rather after the dust settles, so that a complete and 

objective review of all the important aspects of the incident can be made. Local authorities review 

the USFA’s report while it is in draft. The USFA investigator or team is available to local authorities 

should they wish to request technical assistance for their own investigation.

This report and its recommendations were developed by USFA staff and by TriData Corporation, 

Arlington, Virginia, its staff and consultants, who are under contract to assist the USFA in carrying 

out the Fire Reports Program.

The USFA appreciates the cooperation received from the Flint Township, Michigan, Fire Department. 

Particular thanks go to Fire Chief Donald S. Rowley and Captain Robert W. Hamlin.

For additional copies of this report write to the U.S. Fire Administration, 16825 South Seton Avenue, 

Emmitsburg, Maryland 21727. The report is available on the Administration’s Web site at http://

www.usfa.dhs.gov/

Industrial Plastics Fire:

Major Triage Operation

Flint Township, Michigan

Investigated by: Tom D. Copeland

This is Report 025 of the Major Fires Investigation Project conducted 

by TriData Corporation under contract EMW-88-C-2649 to the United 

States Fire Administration, Federal Emergency Management Agency.

Homeland

Security

Department of Homeland Security

United States Fire Administration

National Fire Data Center

U.S. Fire Administration

Mission Statement

As an entity of the Department of Homeland 

Security, the mission of the USFA is to reduce life and economic losses due to fire 

and related emergencies, through leadership, advocacy, coordination, and support. 

We serve the Nation independently, in coordination with other Federal agencies, 

and in partnership with fire protection and 

emergency service communities. With a 

commitment to excellence, we provide public education, training, technology, and data 

initiatives.

Homeland

Security

Table of Contents

OVERVIEW. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

THE FIRE DEPARTMENT. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

SUMMARY OF KEY ISSUES. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

FIRE COORDINATORS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

THE BUILDING. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

THE FIRE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

DAMAGE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

ENVIRONMENTAL MONITORING. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

EVACUATION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

TRIAGE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

LESSONS LEARNED. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Appendices. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Appendix A: Site Plan. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

Appendix B: Fireground Operations Diagram. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Appendix C: List of Slides, Selected Photos, and Site Plan Showing Locations From 

Which Slides Were Taken. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

Appendix D: Material Safety Data Sheets. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

Appendix E: Diverse Plastic’s Hazardous Chemical Survey Form. . . . . . . . . . . . . . . . . . . . . . . 32

Appendix F: Genesee County Fire Coordinators Standard Operating Procedures. . . . . . . . . . 36

Appendix G: Flint Township Basic Disaster Plan. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37

1

Industrial Plastics Fire: Major Triage Operation

Flint Township, Michigan

November 1988

Local Contacts: Donald S. Rowley

Fire Chief

Flint Township Fire Department

6-5331 Reuben Street

Flint, Michigan 48532

(313) 732-4413

Robert W. Hamlin

Captain

Flint Township Fire Department

G-5331 Reuben Street

Flint, Michigan 48532

(313) 732-4413

OVERVIEW

On Tuesday, November 29, 1988, a fire occurred in a one-story Flint Township, Michigan, factory 

that made polyurethane automobile bumpers. Chemicals used in manufacturing the bumpers and 

a large quantity of the bumpers burned. The fire resulted in about 96 people being checked at the 

hospital and the destruction of part of the metal building housing the factory, at a loss of 3,000,000 

dollars. The primary problem in fighting this fire was toxic smoke and the problem of having to 

access the fire from downwind. A county “fire coordinators” system of Incident Command was successfully used to coordinate the activities at the fire and an evacuation of 150 people.

THE FIRE DEPARTMENT

Flint Township is located in Genesee County west of the city of Flint, Michigan. It has a population 

of about 37,000 people and covers an area of 25 square miles. The Flint Township Fire Department 

has three stations with 12 career firefighters and about 44 on-call firefighters and officers. One 

career firefighter is on-duty at all times at each of the three stations plus the chief and assistant chief 

during the day.
2

SUMMARY OF KEY ISSUES

Issues Comments

Cause Unknown at the time of this report. Origin in 160 feet by 125 feet addition to rear of building. 

(See Appendix A for Site Plan.)

Detection Discovered by passerby while building was unoccupied. Alarm was transmitted by telephone.

Building Structure One-story, non-combustible/metal building. About 20,000 square feet fire area.

Contents Fire area contained polyurethane automobile bumpers and associated chemicals used in 

manufacturing.

Fire Protection Equipment No sprinkler system. Building Officials and Code Administrators (BOCA) Building Code would 

require sprinkler system and subdivision of building if built today.

No detection or alarm system other than a security system.

Incident Command County “fire coordinators” system successfully used during incident.

Injuries Firefighting hampered by smoke from burning plastics. Only access was from downwind side. 

One hundred fifty five people triaged including one police officer and six civilians. 

Ninety-six people checked at hospital.

Twelve people admitted to hospital, most for toxic smoke inhalation, plus one firefighter with 

broken shoulder.

Evacuation About 150 people actually evacuated. News media erroneously stated as many as 3,000.

The Flint Township Fire Department equipment includes seven engines, two 100-foot ladder trucks, 

two van-type support units for air and lighting, and one van-type unit that is used for air. Four of the 

engines are typical pumpers. The other three engines carry 2,000 feet of 4-inch diameter hose.

The department has a formal mutual aid agreement with other fire departments in Genesee County, 

including the city of Flint. Mutual aid response is not automatic but results from a specific request, 

as typical elsewhere. Radio dispatching can be done from any of the township stations. Dispatching 

is normally done from Station #1, but all stations have the capability. If the station dispatching has 

to respond, dispatching transfers to the next available station until relief personnel arrive.

Genesee Central Dispatch is operated by the State from the highway patrol station. They dispatch most 

of the county fire departments other than the city of Flint and the Flint Township Fire Department.

The Flint Township Fire Department has no full-time inspector or fire investigator. These functions 

are conducted by other on-duty personnel as time permits. The Diverse Plastics, Inc., facility had not 

been inspected prior to this fire, nor had a pre-fire plan been prepared.

The Flint Township Fire Department has conducted and is continuing to update a survey based on 

the Michigan Right-To-Know Law concerning hazardous chemicals. A questionnaire is sent to businesses with a request that they complete the forms and provide certain information (Appendix E). 

The response to this has been good. However, the information on file for Diverse Plastics was not 

up-to-date.
USFA-TR-025/November 1988 3

FIRE COORDINATORS

A system has been developed within the county whereby “fire coordinators” are used during major 

incidents. Their purpose is to coordinate the use and movement of equipment, personnel, and other 

resources and to maintain fire protection throughout the county. The coordinators are specially 

designated personnel from the various fire departments in the county. The system is activated by the 

officer in charge at an incident by contacting Flint Township Fire Department Station No. 1. which is 

the operations center for the Genesee county fire coordinators. The coordinators are then contacted 

by radio or beeper. Coordinators are assigned to duties at the station and at the scene.

When the fire coordinators are mobilized, some typically serve as sector commanders at the scene, 

and others at the fire station where they make sure that the various county fire stations are covered. 

They coordinate staging of firefighters and equipment, oversee personnel relief, and provide other 

management functions. (For further details see Appendix F.) The system is activated about once a 

month. It was started about ten years ago after a large fire indicated the need for such a coordination 

system and to insure that stations are covered during a major fire.

The Flint Township Fire Department Station No. 1 was used as the coordination center, the staging 

area, and the triage center in this incident. The Chief of the Flint Township Fire Department had a 

command post at the scene along with sector commanders at the scene. No units responded directly 

to the scene on their own.

One hundred eight (108) self-contained breathing units were utilized at the scene. Many of the 

tanks were filled several times. About 13 fire coordinators were used. About 50 firefighters were on 

the scene at any one time. A total of 194 fire personnel from 27 departments participated.

THE BUILDING

The Diverse Plastics, Inc., facility was a one-story metal building with a small two-story office area on 

one end. The original building was 80 foot by 225 foot with the long dimension perpendicular to 

the main road. At the rear, a 166 foot by 125 foot additional had been constructed. (See Appendices 

A and B for additional details.)

Except for the office area, the construction utilized steel structural members and steel exterior wall 

and roof material. The interior typically had fiberglass batt-type insulation attached to the underside of the roof and the exterior walls. The addition was separated from the original building by 

this same type of steel construction but had a 12 foot by 12 foot unprotected opening between the 

new and existing construction. The wall separating the two buildings was not fire-rated. The new 

addition and the existing building each were essentially undivided. The building had no automatic 

sprinkler system and no fire alarm system. There was a security alarm system.

A narrow driveway extended around the perimeter of the building. The main road (Lennon Road) 

ran east/west on the north side of the building. Beyond the paved drive, there were open fields and 

trees on each side. There were no nearby exposures.

The original building contained manufacturing equipment, plastic bumpers, and raw materials. 

The additional (fire area) contained finished plastic bumpers, chemicals in 55-gallon drums used 

to make the bumpers and some manufacturing operations. Additional raw materials in 55-gallon 

drums were located on the south exterior of the fire area. The bumpers were stored primarily in 

stacked metal racks.
4

The right-to-know information on file at the fire station for this building indicated that isocyanate in 

55-gallon drums was stored in the southwest corner of the original building. However, this information listed the building under a different corporate name and was out of date.

Under the BOCA Building Code, a new building of this construction type, occupancy, use, and undivided floor area would both require automatic sprinkler protection and would exceed the undivided 

area limitations. The 1987 editions of both BOCA Building and Fire Prevention Code were in effect 

in Flint Township.

THE FIRE

On the evening of Tuesday, November 29, 1988, a retired firefighter passing the Diverse Plastics, Inc., 

building noticed smoke coming from the building. He determined that there was a fire and notified 

the Genesee Central Dispatch Office. At 1944, Genesee Central Dispatch gave the alarm to Swartz 

Creek Fire Department as a fire on the roof. Flint Township Fire Department overheard the alarm 

and advised Genesee Central Dispatch that the building was in their district. Flint Township Fire 

Department immediately dispatched an aerial and two pumpers, one of which was equipped with 

4-inch hose. Flint Township already had equipment at the scene of a mobile home fire in another 

area. Swartz Creek Fire Department did not continue to the scene at this time.

No one was reported to have been in the building at the time of the fire. The company monitoring 

the security system for the building reported receiving an alarm sometime after the fire department 

received the alarm from the passerby.

At 1949, the first arriving fire apparatus entered on the east side of the property and found smoke 

coming from the addition. Access was gained into the addition at its southeast corner. A 2-1/2-inch 

handline was used for interior attack, and it was thought that the fire was of limited magnitude at 

that time.

The interior attack was not effective and the fire intensified. After a few minutes, the firefighters 

inside were forced out of the building. Units arriving on the west side of the building observed high 

heat conditions and discoloration of the exterior wall. Flashover reportedly occurred. Mutual aid 

and additional equipment were requested. At 1954, additional equipment started being dispatched. 

At 2002 and 2003, the north and south coordinators were alerted to respond (and implement their 

fire coordinator system).

A concern about the toxicity of the smoke arose very early in the fire. Staffing power was intentionally kept to a minimum at the site and virtually all active firefighters at the site used self-contained 

breathing apparatus (SCBA). At 2040, it was reported that an 18 mph wind was blowing toward 

the north.

Access to the property was limited to the perimeter driveway from Lennon Road on the north side of 

the building. Smoke from the fire was very low to the ground and affected access by this driveway. 

It was necessary for firefighters to walk through the smoke in order to obtain refilled air tanks.

After having to retreat from inside the burning addition, firefighting efforts were directed at protecting 

the 55-gallon drums on the north side of the building and preventing spread into the original (older) 

building. A master stream device was located in the original building and aimed southward through 

the opening in the wall between the original building and the addition. The device had a 2-inch solid 

stream tip with an estimated flow of 1,200-1,300 gpm. At times, the stream was directed across the 

separation wall and northward in the original building to cool the ceiling of the original building.
USFA-TR-025/November 1988 5

Two 4-inch supply lines were connected to the fire hydrant near the front of the building and one 

to the next hydrant to the east. The two lines from the front hydrant supplied operations on the east 

side of the building, and the third 4-inch line served operations on the west side along with tanker 

supply. Water supply was generally adequate. A 16-inch water main served the hydrant directly 

across the street from the factory.

The fire was prevented from spreading significantly into the original building. Later in the incident, 

when it was feared that the wind might shift and affect other populated areas, a stronger effort was 

made to extinguish the fire in the addition. The fire was under control about midnight, over four 

hours after being detected.

It is believed that the main contribution to the fire was the finished polyurethane bumpers and packing materials. The bumpers were stored in steel racks stacked vertically in the addition. Even though 

many of the drums were later discovered with bulges, the materials in the drums within the building may not have been significantly threatened due to the venting of the fire through the roof and 

the operation of hose streams. The lack of major structural deformation other than in the southeast 

corner of the addition, which collapsed, supports this theory.

DAMAGE

All of the contents of the addition were either consumed or heavily damaged by the fire except for 

materials that were recovered from the 55-gallon drums. The original building suffered heat and 

flame damage primarily in the ceiling area and near the addition. The remainder of the building 

suffered considerable smoke damage.

ENVIRONMENTAL MONITORING

No samples of smoke were taken during the incident. Water runoff was tested after the incident and 

was reported to be “clean.” A professional cleanup company was used to recover runoff and secure 

the remaining chemicals. Forty-eight drums of materials were removed after the fire.

EVACUATION

The Flint Township Fire Department dispatcher advised the scene at 2009 about the information 

in the right-to-know response from the company. At 2019, a “key holder” for the facility was 

sent to the scene. At 2041, about an hour after the fire was first reported, the Flint Township Fire 

Department chief requested that an area one-half mile north and one-half mile west of the fire be 

evacuated. The Flint Township Fire Department dispatcher correctly understood the chief’s request 

for evacuation of the quadrant from one-half mile north to one-half mile west of this location, and 

relayed this information to Genesee Central Dispatch. The evacuation was conducted by the police 

department. About 150 people were evacuated. Somehow, there were reports that the evacuation 

area was to be one mile in all directions. The media exaggerated the situation and reported that 

about 3,000 people were evacuated. How the area to be evacuated and the number of people evacuated became exaggerated is not known.

The television media reported during the incident that the chemical involved was polyvinyl chloride. 

It is not known how the media reached that conclusion. Reports of cyanide involvement also were 

issued during the incident. These comments developed outside the fire department.
6

Amateur radio operators are part of the fire coordinators system and have a fixed installation at 

Station 1. A total of about 30 members of the amateur radio organization (ARES) were utilized during the incident at the coordination center, at the scene, at hospitals, and other locations.

When the evacuation order was given, the Flint Township supervisor activated the Flint Township 

Disaster Plan (Appendix G). The Genesee County civil defense director also responded. Although the 

county disaster plan was not formally enacted, several elements were used to assist with coordination 

of the evacuation, public information, and communications with other agencies such as the county 

health department. The Red Cross operated evacuation centers. An evaluation of the evacuation was 

being undertaken by the civil defense director at the time of this report.

TRIAGE

Because of the toxic smoke conditions at the fire scene, virtually all personnel who operated at the 

scene were returned at some point to Station No. 1, where they were triaged. Genesee County 

paramedics were used under mutual aid for much of the triage operation. About 96 people were 

transported to hospitals via ambulances for further evaluation or treatment. Several ambulances were 

used to transport as many as four patients at a time. The transport operations ran almost continually 

throughout the incident. Twelve people were admitted, but most were released the following morning. Most people transported were treated for toxic smoke inhalation except for one firefighter with 

a broken shoulder. Seven civilians from the evacuation area were also treated and released. The high 

number of people triaged and treated is not so much a reflection of this fire being unusually severe 

or toxic as that the incident was well managed and appropriate precautions were taken.

Often firefighters and emergency personnel are not routinely checked by medical personnel after 

they have been exposed to smoke. It is quite possible that very few of the people sent to the hospital 

after this fire would have been evaluated or treated through their own initiative. Management of this 

incident through the fire coordinator system included management of the returning personnel as 

well as staging and other firefighting operations.

LESSONS LEARNED

1. Using fire coordinators as part of the Incident Command System was effective. 

This type of operation is most applicable to coordination of multiple small fire departments as 

opposed to operations within a single large city department. The coordinators are responsible 

for and manage much more than just fire scene operations. The fact that most of the coordinators are located at the fire station rather than near the fire scene allows them to be much more 

objective in their work and not distracted by the emergency itself.

2. Combining operations such as triage, staging, decontamination, and rest and relief at one 

location proved to be a problem.

Accounts of the fire relayed by firefighters leaving the scene combined with exaggerated media 

reports contributed to anxiety among firefighters waiting to be assigned. There was an inadequate number of public telephones for emergency personnel to communicate with their families 

concerning their whereabouts and safety. It may be advantageous to have all of these operations 

separated from the actual command center.
USFA-TR-025/November 1988 7

3. Departments need to have established procedures for gaining safe access to the scene when 

there is low-lying smoke.

The size of this fire was not particularly unusual for an industrial fire. The primary problem 

other than toxicity of the smoke centered on access. Access to the fire was primarily through the 

smoke. Relief personnel, fresh air tanks, equipment, and vehicles also had to be moved through 

the smoke. Where this cannot be avoided, procedures need to be developed so that this can be 

accomplished in the safest manner possible. People moving through such smoke, even outside, 

should use SCBA.

4. Accurate pre-fire surveys of hazardous materials (Hazmat) present are needed so that emergency personnel can know what to expect.

In this case, there was no up-to-date information concerning Hazmat in the building addition 

where the fire occurred. In this fire the lack of information added to the apprehension experienced by the firefighters and to the exaggerated media reports.

5. The lack of automatic sprinkler protection and subdivision of fire areas are believed to be 

the major contributors to the consequences of this incident.

Complete and appropriate automatic sprinkler protection most probably would have suppressed 

or contained this fire. Manual firefighting efforts in situations such as this cannot be expected 

to prevent major fire development.

6. Evacuation instructions need to be clearly understood.

The evacuation in this incident appears to have been reasonably effective. But there was a 

potential for confusion when identifying the area to be evacuated. In this fire, the request that 

an area one-half mile north and one-half mile west be evacuated was somewhat ambiguous. A 

more standard terminology should be developed to define an area to be evacuated, particularly 

when face-to-face contact is not possible. Maps with pre-marked codes can be referred to more 

easily.

7. A fire coordinator or other responsible person needs to be assigned responsibility for working with the media.

During this incident, incorrect information about the materials involved in the fire and the magnitude of the evacuation were publicly broadcast. A media coordinator can provide the proper 

names of any materials involved, the toxicity, and any precautions that are required.

8. Additional frequencies and dispatchers may be necessary to handle the communications 

load in an incident such as this.

During this incident, the fire department communications dispatcher found it extremely difficult to handle all of the communications needs. Procedures are needed so that additional personnel can assist with dispatching to allow full attention to radio traffic as well as accomplishing 

the many tasks associated with an incident of this type. This is not always going to be possible 

and is an area that needs further study.

9. With the growing problem of Hazmat and toxicity, along with the increased concern for 

firefighter health and safety, it may become standard practice for emergency personnel to 

be medically evaluated after a fire.
8

Attention was drawn to this fire by the reports of so many people receiving medical attention 

and being sent to the hospital – not because of the magnitude of the fire or the number of 

people evacuated. Historically, this has been done primarily only when personnel complained 

or had obvious injuries. The numbers of people medically evaluated in this incident may have 

actually been a result of good management rather than the seriousness of the incident. In the 

past, many of the emergency personnel may simply have gone home with a “bad headache.”
9

Appendices

A. Site Plan

B. Fireground Operations Diagram

C. List of Slides, Selected Photos, and Site Plan Showing Locations 

From Which Slides Were Taken

D. Material Safety Data Sheets

E. Diverse Plastic’s Hazardous Chemical Survey Form

F. Genesee County Fire Coordinators Standard Operating Procedures

G. Flint Township Basic Disaster Plan
10 U.S. Fire Administration/Technical Report Series

Appendix A
USFA-TR-025/November 1988 11

Appendix B
12 U.S. Fire Administration/Technical Report Series

Appendix C

List of Slides

The slides with an asterisk have been made into photos and reproduced on the following pages.

1. Overview of building looking toward southeast from Lennon Road. Office area is in foreground to the left. New addition is in background to right.

2. View of north side of the new addition. Existing building to left.

3. View toward northeast showing south and west sides of building. Collapsed area is to right.

4. View from exterior showing south end of new addition with drum storage outside. Collapsed 

area is out of picture to right.

5. View showing collapsed southeast corner of building.

*6. Examples of 55-gallon drums that expanded due to fire exposure.

7. Photograph of label on 55-gallon drum.

8. Photograph of label on 55-gallon drum.

9. Photograph of label on 55-gallon drum.

10. View showing collapsed southeast corner of building and east side of building.

*11. View toward west showing collapsed southeast corner of building. Entry was made in this 

portion of building for initial interior fire attack. Note discoloration to building exterior.

12. View of east side of building showing trailer backed up to loading dock. Interface of new and 

existing building is where the two different colors of exterior siding are evident.

13. View into trailer backed up to the loading dock showing polyurethane bumpers in steel racks.

*14. Example of steel storage racks for bumpers inside new addition.

15. Close-up of charred remains of bumper material in steel rack.

16. Example of remains of bumpers on steel shelving.

17. Example of heat damaged plastic bumpers in steel racks.

18. Example of bumpers stored in existing portion of building.

19. View inside new addition toward north. Note steel columns and roof system still intact. Plywood 

area covers original unprotected opening between new addition and existing construction.

20. View inside new addition toward northwest showing door opening that has been covered 

with plywood.

21. View in existing building toward south showing plywood covered opening into addition. 

Monitor nozzle was located in this area and aimed into the new addition through the doorway.

22. View of metal partition from existing building toward new addition.

*23. Photograph taken at Flint Township Fire Department Station 1. Dispatcher room showing map 

and fire department information.
USFA-TR-025/November 1988 13

6. Examples of 55-gallon drums that expanded due to fire exposure.

11. View toward west showing collapsed southeast corner of building. 

Entry was made in this portion of building for initial 

interior fire attack. Note discoloration to building exterior.
14 U.S. Fire Administration/Technical Report Series

14. Example of steel storage racks for bumpers inside new addition.

23. Photograph taken at Flint Township Fire Department Station 1. Dispatcher room 

showing map and fire department information.
USFA-TR-025/November 1988 15

Appendix C (Continued)
16

Appendix D
USFA-TR-025/November 1988 17

Appendix D (Continued)
18 U.S. Fire Administration/Technical Report Series

Appendix D (Continued)
USFA-TR-025/November 1988 19

Appendix D (Continued)
20 U.S. Fire Administration/Technical Report Series

Appendix D (Continued)
USFA-TR-025/November 1988 21

.Appendix D (Continued)
22 U.S. Fire Administration/Technical Report Series

Appendix D (Continued)
USFA-TR-025/November 1988 23

Appendix D (Continued)
24 U.S. Fire Administration/Technical Report Series

Appendix D (Continued)
USFA-TR-025/November 1988 25

Appendix D (Continued)
26 U.S. Fire Administration/Technical Report Series

Appendix D (Continued)
USFA-TR-025/November 1988 27

Appendix D (Continued)
28 U.S. Fire Administration/Technical Report Series

Appendix D (Continued)
USFA-TR-025/November 1988 29

Appendix D (Continued)
30 U.S. Fire Administration/Technical Report Series

Appendix D (Continued)
USFA-TR-025/November 1988 31

Appendix D (Continued)
32

Appendix E
USFA-TR-025/November 1988 33

Appendix E (Continued)
34 U.S. Fire Administration/Technical Report Series

Appendix E (Continued)
USFA-TR-025/November 1988 35

Appendix E (Continued)
36

Appendix F

GENESEE COUNTY FIRE COORDINATORS

SCOPE:

Coordinators are a tool to assist a fire department at a major incident with the movement of equipment, personnel, and/or other problems.

Coordinators will, at the discretion of the officer in-charge of the incident, take whatever steps 

necessary to fill the request of that officer. Coordinators shall assess the overall situation and initiate 

actions (move-ups) required to provide adequate protection to all areas of the county.

HOW ACTIVATED:

The officer in-charge of the incident can activate the coordinators at his/her discretion by contacting 

Flint Township Fire Department (27) by radio or telephone and request the coordinators be activated.

When Flint Township Fire is notified, they will activate the county master en-coder and request the 

coordinators to be activated. If the incident is in the north county, the south county coordinators 

will be activated first. If the incident is in the south county, the north county coordinators will be 

activated first. The activation of the coordinators is for information only, and does not necessitate the 

staffing of stations, unless requested to do so.

When county coordinators are activated, Flint Township Fire will call the Amateur Radio Operators, 

One Amateur Radio Operator will report to Flint Township Fire and one will go to the command post 

at scene as alternate communications.

COORDINATORS OPERATIONS:

The request of the coordinators shall be considered same as a request from the officer in-charge, 

under the terms of the Mutual Aid Pact.

All on-scene radio communication will be conducted thru the coordinators, not thru base radios, 

once coordinators are in operation.

All apparatus moving up shall be under the control of the coordinators and radio communications 

shall be directed to the coordinators. Base radios are not to communicate with apparatus unless 

operating another incident within their own fire district.

Incidents using coordination shall be handled on the Mutual Aid Radio Frequency for all units at the 

scene. The coordinators will initiate this if necessary.

Units going to the incident shall change to the Mutual Aid Frequency when they are within two 

minutes of the incident.

During times of coordination, all radios not involved in the incident shall remain on their normal 

operating frequency.

The coordinators shall remain active as necessary until the status of equipment is at a normal and 

adequate level.

Revised Sept. 1988
37

Appendix G

FLINT TOWNSHIP

BASIC DISASTER PLAN
38 U.S. Fire Administration/Technical Report Series

FLINT TOWNSHIP

BASIC DISASTER PLAN

INTRODUCTION

The Flint Township Basic Disaster Plan has been developed to insure the residents of Flint Township 

that local government will be able to respond to major disasters in a prompt, orderly, and organized 

fashion. Experiences of the past have shown that a well thought out disaster plan can facilitate 

Government’s response to disasters. Communities with disaster plans have been shown to be more 

capable of responding to disasters than those without them.

The Flint Township Basic Disaster Plan is designed to deal with both man-made and natural disasters. 

It deals most specifically with the probable results of nuclear attack. It does so for two reasons. First, 

it fulfills the requirements for nuclear planning as established by both the Federal and State governments. Secondly, by planning for the worst possible disaster, the plan incorporates all the possible 

tasks government faces in any of the smaller disasters.

The plan assigns general areas of disaster related responsibilities to given departments or individuals. In some cases it gives rather specific detailed assignments, but in most cases it simply provides 

a set of guidelines for the development of detailed standard operating procedures. The departments 

of individuals charged with performing the actual work are thus able to adapt their own day-to-day 

operations to disaster situations. This is in keeping with the planning precept that disaster related 

tasks should be assigned to those who do similar work on a day-to-day basis.

Individuals who have suggestions or comments related to this plan or the standard operating procedures manual should direct them to:

Galen Jamison

Flint Township Supervisor

1490 S. Dye Road

Flint, MI 48532

or:

John H. West, Jr.

Genesee County Office of

Emergency Preparedness

1101 Beach Street

Flint, MI 48502
USFA-TR-025/November 1988 39

BASIC PLAN INDEX

I. LEGAL AUTHORITY

II. HAZARDS/PURPOSE

III. DEFINITIONS

IV. KEY ASSUMPTIONS/CONCEPT OF OPERATION

V. EXECUTION/ACTIVATION

VI. DISASTER TASKS/RESPONSIBILITIES/ASSIGNMENTS

VII. LINE OF SUCCESSION

VIII. RADEF ANNEX

IX. CALL LIST

X. RESOURCE LIST

XI. SHELTER LIST
40 U.S. Fire Administration/Technical Report Series

I. LEGAL AUTHORITY

A. Authority for this plan is provided by the Michigan Emergency Preparedness Act, Act 390, 

Public Acts of 1976, Section 10, as amended.

B. Authority for this plan is established by Resolution Number 77-259 of the Genesee County 

Board of Commissioners to establish an emergency preparedness policy and organization 

dated June 14, 1977.

C. Authority for this plan is the result of a resolution adopted by the Board of Trustees of Flint 

Township.

II. HAZARDS/PURPOSE

A. Hazards

1. Enemy Capabilities

It is assumed that potential enemies of the United States have the capability of launching an attack on the United States with sufficient weapons, nuclear, biological, and 

chemical, to strike a high proportion of our military, industrial, and population targets 

at a time of their choosing. For Crisis Relocation Planning purposes, Flint Township is 

designated a risk area.

2. Natural Disasters

Flint Township is subject to tornadoes, floods, fires of major proportions, explosions 

and other catastrophes occurring from natural and accidental causes.

3. Other Incidents

It is also recognized that Office of Emergency Preparedness services may be needed in 

the event of riot or civil disturbances and industrial or nuclear accidents.

B. Purpose

The mission of the Flint Township Basic Disaster Plan is to organize, coordinate, and direct 

the actions of the Township emergency services and the public, to execute prepared plans of 

operations in the event of enemy-caused emergency, natural disaster, catastrophic accident, 

or civil disturbances; to save the maximum number of lives; minimize damage to property; 

to receive and disseminate the attack warning; to direct the public to the best available shelter in a fallout situation; to maintain the continuity of government; to preserve vital records; 

and to provide support and assistance to other jurisdictions.

III. DEFINITIONS

For the purpose of this Emergency Operations Plan, certain words and phrases used herein are 

defined as follows:

A. “Disaster” means an occurrence or imminent threat of widespread or severe damage, injury, 

loss of life or property resulting from any natural or man-made cause, including but not 

limited to fire, tornado, flood, snow, ice, or wind storm, wave action, oil spills, water contamination requiring emergency action to avert danger or damage utility failure, hazardous 

peacetime radiological accident, major transportation accident, epidemic, air contamina-
USFA-TR-025/November 1988 41

tion, blight, drought, infestation, explosion, riot, or hostile military or paramilitary action. 

Riots and other civil disorders are not within the meaning of this term unless they directly 

result from and are an aggravating element of the disaster.

B. “Emergency Preparedness Coordinator” shall mean the person duly appointed to coordinate emergency planning and services within Genesee County to protect the public 

health, safety, and welfare during emergency situations and disasters. In the absence of an 

appointed person, “Coordinator” shall mean the Chairperson of the Genesee County Board 

of Commissioners.

C. “Local Civil Defense Liaison” shall mean Galen Jamison, Flint Township Supervisor.

D. “Emergency Operating Center” (EOC) shall mean the Federally approved EOC located in 

the lower level of the Genesee County Administration Building, 1101 Beach Street, Flint, 

Michigan. This EOC will be the facility where heads of departments and agencies, or their 

representatives, will be assembled during disasters to facilitate coordinated disaster response 

and recovery. A secondary facility may be designated by the Coordinator or the Chairperson 

of the Board of Commissioners as the EOC to be used for the above purposes.

E. “Local Disaster Control Center” shall mean the command center established by the Flint 

Township Disaster Plan in Section V.D.

F. “Emergency Operations Plan” means the Genesee County Emergency Operations Plan 

which has been developed to assign various disaster tasks among departments and agencies 

and to coordinate disaster response and recovery within Genesee County. The EOC is also 

called the Emergency Preparedness Plan for the purposes of Act 390, Public Acts of 1976, 

Section 19.

G. “Major Disaster” or “Emergency Declaration” means the designation by the President under 

the provisions of Public Law 93-288, upon the request of the Governor, that a disaster of 

major proportions has occurred and that Federal disaster assistance will be provided subject 

to conditions established by the President.

H. “State of Disaster” means a declaration of executive order or proclamation by the Governor 

under the provisions of Act 390, Public Acts of 1976, which activates the disaster response 

and recovery aspects of State, county, local, and interjurisdictional disaster emergency plans 

and authorizes the deployment and use of any forces to which the plan or plans apply.

I. “State of Emergency” means a declaration by the Chairperson of the Board of Commissioners 

which activates the disaster response and recovery aspects of the Genesee County Emergency 

Operations Plan and authorizes the deployment and use of any disaster relief forces to 

which the plan applies.

J. “Disaster Assistance Center” shall refer to federally selected site through which all services 

to individuals will be channeled. It allows victims to obtain all available services in a “onestop” fashion.

IV. KEY ASSUMPTIONS – CONCEPT OF OPERATIONS

A. Initial and primary response to disasters is the responsibility of local government. When it 

has been determined that the disaster is beyond the capability of local government or where 

special equipment or resources are necessary to alleviate the effects of the disaster, assis-
42    U.S. Fire Administration/Technical Report Series

tance from the county may be requested.  If the disaster is beyond the county’s capability 

or requires special resources, the county may request assistance from the State government. 

If the disaster is beyond the State’s capability or requires special resources, the State may 

request assistance from the Federal government.

B.  It  is  a  basic  concept  that  emergency  operations  will  make  use  of  all  available  resources 

(governmental and private) to combat the effects of a disaster.  Since the normal functions 

and organization of local government will be the primary resource around which a disaster 

operations organization will be developed, appropriate emergency functions are assigned 

to the various departments of Flint Township government in-line with normal day-to-day 

responsibilities, as much as possible.

C.  Heads of departments assigned responsibility for emergency functions, or their representatives, will be assembled in a central facility called the EOC under the direction of the 

Chairperson of the Genesee County Board of Commissioners or at the Disaster Control Center 

(DCC) under the Supervisor.  The Genesee County Emergency Preparedness Coordinator 

will function as the coordinator of all activities within the EOC.  The Civil Defense Liaison 

Officer will serve as the coordinator at all activities in the local DCC.  The EOC or DCC will 

have a communications capability so that field elements of all disaster relief forces can be 

directed and controlled by the appropriate EOC or DCC staff and so that required information may be received, recorded, plotted, analyzed, and so that timely decisions may be in 

response to a disaster.  Common information will be displayed for all department heads to 

see and use.  Communications will be established with the State, local communities and 

agencies, and adjacent jurisdictions.

D.  The Genesee County Civil Defense Disaster Plan will be used to supplement Flint Township’s 

ability to respond to disasters.  In turn the resources of Flint Township are made available to 

the County Plan as needed and available.

V.	 EXECUTION/ACTIVATION

A.  Activation of this plan will be initiated by the declaration of a state of emergency by the 

Supervisor or by the Chairperson of the Genesee County Board of Commissioners upon the 

request of Flint Township.

B.  Whenever the Chairperson deems a disaster is beyond the control of local, public or private 

agencies and that county, State, Federal, or military assistance may be required, he may act 

for the Township and request the Genesee County Emergency Preparedness Coordinator to 

request that the Governor declare a state of disaster.

  Such request will be submitted by the coordinator to the Michigan State Police District 

Emergency Services Coordinator in accordance with Section 14, Act 390, Public Acts of 

1976.  The Chairperson shall convene the Board of Commissioners as soon as practical for 

their affirmative action.  The Supervisor will convene the Board of Trustees as soon as practical for their affirmative action in all cases.

C.  Upon the declaration of a state of disaster by the Governor, this plan will be automatically 

activated, if not activated previously by the Supervisor or the Chairperson of the County 

Board of Commissioners.
USFA-TR-025/November 1988 43

D. The Supervisor may exercise all emergency power and authority as specified herein. 

Whenever a situation requires, or is likely to require, that the Supervisor invoke such power 

and authority, he shall, as soon as reasonably expedient, convene the Board of Trustees to 

perform its legislative and administrative duties as the situation demands, and shall report 

to that body relative to emergency activities.

The Local Civil Defense Liaison will be responsible for identifying and staffing the local 

Disaster Control Center, as authorized by the Supervisor. The Civil Defense Liaison Officer 

will be responsible for coordinating the efforts of county, State, and Federal agencies as 

required. The Assistant Civil Defense Liaison shall serve as the Supervisor’s chief advisor on 

dealing with the emergency or disaster.

The DCC for Flint Township is located at the Flint Township Fire Department, 5331 Reuben 

St., Flint, Michigan. 

Secondary, 3327 Flushing Road.

It is also recognized that the delivery of State and Federal individual assistance program may 

require the establishment of a Disaster Assistance Center to facilitate the delivery of such 

services. All agencies providing such services will be represented in the Disaster Assistance 

Center. Suggested locations for Flint Township are:

1. Dye Elementary

1174 Graham Rd.

Flint, MI 48532

2. Senior Citizens Center

2071 S. Graham Rd.

Flint, MI 48532

3. Carman High School

1300 N. Linden

Flint, MI 48532

It is also recognized that a local coordinating officer for Flint Township may be required 

to work with Federal officials. The Supervisor, Mr. Galen Jamison, or assistant civil defense 

liaison will serve in this capacity.

Warning

Nuclear Attack:

The National Warning System (NAWAS) is used to distribute nuclear attack related information. The NAWAS warning point for the Flint area is the Michigan State Police Post #35. The 

post will provide warning of relocation, impending attack or natural disaster to key agencies. 

The city of Flint Police Department is designated as the secondary warning point for the Flint 

Township area.

The Emergency Broadcast System will also be utilized to disseminate such warning.
44 U.S. Fire Administration/Technical Report Series

Natural Disasters

The National Atmospheric and Oceanic Administration have established a weather broadcasting system which disseminates warnings on a twenty-four hour basis. The NOAA Weather 

Radio is the fastest means of obtaining weather alerts, watches and warnings. Flint Township 

has a weather alert radio located at the Flint Township Fire Department, 5331 Reuben, Flint, 

Michigan.

The broadcast media serving the Flint Township area also cooperates in disseminating information to the public.

Other Warning Systems

Communications:

Telephones:

Flint Township has a telephone system capable of handling 14 incoming calls at any one time. 

They are located at the Flint Township Hall, 1490 South Dye Road, Flint, Michigan. The Flint 

Township Fire Department has the capability of handling 4 incoming calls.

Police:

The Flint Township Police Department operates a radio system on the following frequencies:

Trans. Rec.

Lein 156.030 155.610

Central 155.850 155.445

Car to Car 155.880 155.880

Emergency Car to Car 155.865 155.865

It has eight (8) mobile radios and eleven (11) portable radios. Its base station is located at the 

Flint Township Police Department, 1490 S. Dye Road, Flint, Michigan.

Fire:

The Flint Township Fire Department operates a radio system on the following frequencies:

1. South End Normal Dispatch Channel 154.190

2. Mutual Aid Dispatch Channel 154.280

3. North End Dispatch Channel 154.145

4. State-wide Mutual Aid Channel 154.129

It has 12 mobile units and 18 portable units. Its 3 base stations are located at the Flint Township 

Fire Department, 5331 Reuben St., Flint, Michigan and at Station #2, 3327 Flushing Road, Flint, 

Michigan, and Station #3 at 2511 W. Bristol Road, Flint, Michigan.
USFA-TR-025/November 1988 45

Volunteer Services

Amateur Radio Emergency Services (ARES):

The ARES is a local group of ham radio operators who are available for disaster related work. 

They may be activated by calling (313) 767-7048.

Community Radio Watch:

The Community Radio Watch (CRW) is a police approved and trained group of Citizens 

Band Radio Operators. They may be activated by calling (313) 766-7444 at the Flint Police 

Department.

Damage Assessment

The amount and types of damage resulting from disasters has a direct bearing on the nature 

of the response to such disasters. Consequently, it is paramount that an accurate assessment of 

such damage take place immediately. Flint Township has designated the Township Assessor as its 

Damage Assessment Officer (DAO).

The DAO will prepare a summary of any disaster damage occurring in Flint Township. The DAO 

will also ensure that the County Emergency Preparedness Director is informed as well.

Should the damage be extensive enough to require State or Federal aid, Form E.S. 2, will be used 

to summarize the damage.

Emergency Public Information

The Genesee County Office of Civil Defense shall provide an Emergency Public Information 

Office (EPIO) to aid the Supervisor in dealing with the media during disasters.

The EPIO will be responsible for authenticating all information released to the public. The EPIO 

will also be responsible for rumor control.

The Supervisor may designate an alternate EPIO if he finds it necessary or desirable.

Law Enforcement

The Flint Township Police Chief will serve as Law Enforcement Coordinator for Flint Township 

in the event of a large scale disaster. He (or his designee) shall report to the DCC as soon as it is 

established.

The chief will be responsible for the protection of property and the maintenance of law and 

order. The chief will be responsible for securing the site of any disaster damage.

Additional aid will be sought from the Sheriff’s Department and the Michigan State Police as 

needed. If additional aid beyond local police resources is needed, the chief may, through the 

Genesee County Office of Civil Defense, request that the National Guard be activated.

Fire Services

The Flint Township Fire Chief (or his designee) shall serve as the Fire Coordinator for Flint 

Township. The fire department will be responsible for fighting fires, coordinating rescue operations and handling chemical or other Hazmat problems including radiological monitoring and 

radiological defense.

The fire chief will assign a fire representative to the DCC.
46 U.S. Fire Administration/Technical Report Series

The fire chief will also be responsible for soliciting additional aid under the Mutual Aid Pact for 

Genesee County Fire Departments.

Health and Medical Services

The Joint Hospital Disaster Preparedness Committee Medical Disaster Plan will be used to deal 

with large scale medical emergencies. The Health Annex to the Genesee County Basic Disaster 

Plan will be used to deal with large scale health threats.

Shelter

The Red Cross will be responsible for sheltering disaster victims left without housing. The 

Red Cross will maintain a list of available natural disaster shelters for use as temporary mass 

housing.

The Red Cross will also work closely with the Genesee County Office of Civil Defense and 

Salvation Army to relocate disaster victims in more permanent and private housing.

Should a national disaster be declared, the Red Cross will work through the Genesee County 

Office of Civil Defense to establish linkage with Federal housing personnel.

The Civil Defense Liaison will work with the County Office of Civil Defense to identify and 

mark fallout shelters in Flint Township for purposes of nuclear attack or peace time nuclear 

accidents.

Public Works/Debris Clearance

The Genesee County Road Commission will be responsible for assuring that the streets of Flint 

Township are cleared after any disaster.

The Flint Township Health Board will be responsible for debris clearance on private property 

when viewed as a health hazard.

The County Road Commission and private contractors within Flint Township will aid fire personnel with heavy rescue equipment as needed.

The Flint Township Building Inspector will be responsible for inspecting and labeling all disaster 

damage buildings.

Such labeling will be designed to protect occupants and others from health and safety hazards.

Each of the above agencies will send representatives to the DCC to assure good response coordination. Each of the above agencies will also provide the Damage Assessment Officer with 

damage information as appropriate.

Local Civil Defense Liaison

The Civil Defense Liaison will be responsible for:

1 Identifying a Disaster Control Center for an Alternate Disaster Control Center.

2. Identifying a DCC for an Alternate DCC.

3. Identifying two potential sites for Disaster Assistance Centers should they be needed.

4. Staffing and equipping the DCC, training and coordinating, the DCC staff.
USFA-TR-025/November 1988 47

Lines of Succession

The line of succession for the continuity of administration and government in disasters, as provided by the resolution adopted on is as follows:

1. Chief Executive Officer

Galen Jamison, Township Supervisor

 1st Successor

Township Clerk

 2nd Successor

Township Treasurer

2. Civil Defense Liaison

Township Supervisor

 Assistant Civil Defense Liaison

Fire Chief