With a comprehensive Emergency Plan in place, the City of Toronto is prepared to effectively handle all emergencies. The Emergency Plan details the methods in which the City mobilizes its resources during a crisis and ensures all City organizations, emergency response services and key agencies are fully aware of their respective roles and responsibilities during an emergency. The goal is to respond and reduce the impact of a public emergency and restore the municipality to a normal state as soon as possible.
| Acronym | Full Name |
|---|---|
| BCP | Business Continuity Plan |
| CEMC | Community Emergency Management Coordinator |
| DAC | Divisions, Agencies and Corporations |
| DOC | Divisional Operations Centre |
| DRAO | Disaster Recovery Assistance for Ontarians |
| ECCC | Environment and Climate Change Canada |
| EIO | Emergency Information Officer |
| EMCPA | Emergency Management and Civil Protection Act |
| EMO | Emergency Management Ontario |
| EMWG | Emergency Management Working Group |
| EOC | Emergency Operations Centre |
| HIRA | Hazard Identification and Risk Assessment |
| IMS | Incident Management System |
| IMT | Incident Management Team |
| MDRA | Municipal Disaster Recovery Assistance |
| PEOC | Provincial Emergency Operations Centre |
| TEM | Toronto Emergency Management |
| TEMPC | Toronto Emergency Management Program Committee |
| TEOC | Toronto Emergency Operations Centre |
Toronto is Canada’s largest municipality, home to approximately three million residents across 158 distinct neighbourhoods, distributed among 25 municipal wards, each with its own unique characteristics and needs.
As the country’s most populous and diverse urban centre, Toronto faces a broad spectrum of natural, human-caused and technological hazards. These risks highlight the need for a clear and adaptable approach to emergency response – one that prioritizes life safety, public health and well-being, infrastructure and environmental protection and the continuity of social and economic systems.
The Emergency Management and Civil Protection Act (EMCPA) defines an emergency as:
“a situation or an impending situation that constitutes a danger of major proportions that could result in serious harm to persons or substantial damage to property and that is caused by the forces of nature, a disease or other health risk, an accident or an act whether intentional or otherwise.”
Toronto Emergency Management (TEM) developed the Base Emergency Response Plan (Base Plan) to outline how the City of Toronto (the City) responds to an emergency impacting Toronto. The Base Plan provides a strategic, all-hazards framework to guide coordinated municipal action.
The Base Plan supports a timely, coordinated response across the City’s divisions, agencies and corporations (DACs) and fosters collaboration with other levels of government and external stakeholders who play critical roles in emergency response. This integration is guided by strategic oversight from the Emergency Control Group and enabled through operational coordination at the Toronto Emergency Operations Centre (TEOC).
The Base Plan is designed to be read and understood prior to an emergency and serves as a reference for:
The table below outlines the characteristics and conditions addressed by the Base Plan.
| Parameter | Description |
|---|---|
| Lead time | Covers emergencies with varying degrees of warning – from sudden, no-notice incidents to those with a defined period for preparation |
| Rate of progression | Emergencies that evolve at different speeds – from fast-moving incidents (e.g., explosions, flash floods) to slow-developing situations (e.g., pandemics, droughts, civil unrest) |
| Risk | Significant threats to life safety, public health and well-being, infrastructure, the environment, and the continuity of social and economic systems |
| Complexity | Situations requiring multi-DAC coordination, cross-jurisdictional support, or specialized resources beyond routine operations |
| Impacts | Potential for casualties, displacement, infrastructure damage, environmental harm, economic disruption, or strain on support systems |
| Hazards | All-hazards approach includes emergencies and major events, which are planned, large-scale activities that may pose significant risks or disrupt normal operations (e.g., large public gatherings, high-profile entertainment or sporting events, demonstrations) |
| Integration with other plans | Interfaces with DAC emergency response and business continuity plans (BCPs) to ensure coordinated action |
| Jurisdictional boundaries | A municipal coordination aligned with but not governing provincial or federal emergency operations, complements broader emergency frameworks |
| Response | Focus on the response and initial recovery of an emergency, mitigation, prevention, preparedness and long-term recovery addressed through other municipal strategies and plans |
Effective administration of the Base Plan ensures that emergency response in Toronto is well-structured and strategically aligned across DACs, other levels of government and external stakeholders. This section outlines the elements that support the Base Plan’s lifecycle – including governance, version control, roles in maintenance and mechanisms for review and improvement.
The Base Plan is grounded in a robust legal and regulatory foundation that empowers the City of Toronto to prepare for, respond to and recover from an emergency. The following instruments govern its development, implementation and maintenance.
The Emergency Management and Civil Protection Act (EMCPA) is Ontario’s primary legislation for emergency management. It mandates that each municipality implement a comprehensive emergency management program that includes:
Under the EMCPA, Ontario Regulation 380/04 (O. Reg. 380/04) sets out the standards that Ontario municipalities and provincial ministries must meet to ensure effective emergency preparedness, response and recovery.
As required by the regulation, municipalities must:
These requirements establish the minimum compliance standards. Municipalities may choose to exceed these standards to further strengthen their emergency management programs and enhance community resilience.
Designated Roles under O. Reg. 380/04
The City has designated the Executive Director of TEM as the primary CEMC. This role is supported by a team of designated alternate CEMCs, including directors and managers within TEM.
The City has designated the City’s Chief Communications Officer as the EIO.
Toronto Municipal Code, Chapter 59, Emergency Management formally adopts Toronto’s emergency management program, including the Base Plan. It enables expedited decision-making during emergencies and delegates Council’s authority to the Toronto Emergency Management Program Committee (TEMPC) to update and revise program components.
TEMPC is the leadership body for emergency management and includes senior city officials and representatives from appropriate DACs, such as Toronto Fire Services and Toronto Public Health. TEMPC provides strategic oversight of the emergency management program. The full membership is outlined in Chapter 59 of the Toronto Municipal Code.
Under Chapter 59, TEMPC designates staff to serve on the Emergency Management Working Group (EMWG), a subordinate, management-level group focused on operational planning and preparedness. It is composed of representatives from DACs with mandates related to emergency response, such as Toronto Water and Toronto Shelter and Support Services.
The EMWG supports the coordination of preparedness activities, shares DAC perspectives and contributes to the development and implementation of emergency management initiatives.
To support specific planning efforts, the EMWG may establish subordinate sub-groups or networks composed of subject matter experts and leads from DACs, other levels of government, and external stakeholders. These sub-groups focus on specialized areas of emergency management and report to the EMWG.
Sample EMWG sub-groups
Hazard-Specific Working Groups support the development and maintenance of hazard-specific annexes; examples include the Flooding Working Group and Extreme Winter Weather Working Group.
The Emergency Risk Communications Network coordinates public information strategies and messaging during an emergency.
Under the direction of TEMPC, TEM oversees and coordinates the City’s emergency management program, including the Base Plan and annexes.
Chapter 59 is enacted under the authority of the EMCPA, which mandates that Ontario municipalities establish emergency management programs through by-law. This provision forms the legal foundation for Toronto’s emergency management framework and ensures alignment with provincial standards.
The City’s Business Continuity Management Policy establishes the governance framework that enables the organization to maintain the delivery of critical services within an acceptable time frame during a disruption.
This Policy sets compliance requirements, defines roles and responsibilities and provides a mechanism for regular program review to ensure that business continuity management and planning are coordinated and standardized across City divisions. It is supported by the Business Continuity Steering Committee, which provides strategic oversight, and the Business Continuity Working Group, which focuses on operational planning and implementation.
The Policy applies exclusively to City divisions and does not currently extend to agencies and corporations. However, agencies and corporations are welcome to adopt the Policy as a best practice. They may also be required to comply with sector-specific standards for business continuity planning.
The Policy incorporates best practices from the EMCPA, ISO 22301 and CSA Z1600 and was approved by TEMPC in accordance with Chapter 59.
Under the Policy, City divisions must develop and maintain business continuity plans (BCPs) for critical business processes. BCPs provide guidance, strategies and recovery actions to respond to and recover from disruptive events, strengthening the City’s overall resilience.
The Base Emergency Response Plan provides the framework for responding to emergencies, while the Business Continuity Management Policy establishes the direction for maintaining and restoring critical services during and after disruptions. Together, these documents create an integrated approach to resilience.
The City’s Emergency Response Plan (the Plan) is comprised of the Base Plan, Functional Annexes, Hazard Annexes and Support Annexes. All these combined make up the Plan.
The Base Plan is the City’s strategic, all-hazards framework for managing emergencies. It establishes the legal and administrative foundations for emergency response, defines the City’s emergency response structure, outlines decision-making authorities, the concept of operations to support coordination, escalation, notifications and scaling down.
The Base Plan is developed by Toronto Emergency Management (TEM) in consultation with the Emergency Management Working Group (EMWG). The Base Plan is approved by the Toronto Emergency Management Program Committee (TEMPC).
Annexes offer detailed guidance on specific emergency response functions, hazard responses and other supporting information relevant to the Base Plan.
Functional Annexes (previously referred to as Emergency Support Functions) describe common emergency response functions, such as evacuation or debris management. These annexes support the Base Plan but can be referenced independently. They outline the roles, responsibilities and actions of relevant DACs.
Functional Annexes are developed collaboratively by Toronto Emergency Management and DACs. Each Functional Annex is approved by the lead DAC named in each annex, in coordination with TEM.
Hazard Annexes address the unique risks and response requirements of individual hazards such as nuclear, flooding and extreme heat. These are informed by the City’s Hazard Identification and Risk Assessment (HIRA). Like Functional Annexes, they support the Base Plan but can be referenced independently. Not all hazards will have a dedicated Hazard Annex; these annexes are developed based on the complexity, impact and need for specialized response planning.
Hazard Annexes are developed collaboratively by Toronto Emergency Management and the appointed members of a hazard‑specific working group. Hazard Annexes are approved by Toronto Emergency Management.
Support Annexes serve as essential supplements to the Base Plan, providing detailed guidance, specialized procedures and protocols that enhance the overall understanding and implementation of emergency response measures.
Support Annexes are developed by Toronto Emergency Management in consultation with DACs and are approved by Toronto Emergency Management.
TEM reviews and updates the Base Plan at least annually and makes additional revisions as needed following significant emergency responses, such as those classified as Level 4 (see Section 4.2. Response Levels).
TEM is responsible for distributing the Emergency Response Plan (which consists of the Base Plan and its annexes) to all TEMPC and EMWG members annually. The Base Plan is also made publicly accessible on the City of Toronto website. TEM will notify TEMPC and EMWG of any updates to the Base Plan or annexes and will distribute updated documents accordingly.
TEM may distribute the Base Plan and relevant annexes with additional DAC staff, other levels of government and external stakeholders involved in a City response.
As required under the EMCPA, TEM submits a copy of the Base Plan to the Chief, Emergency Management Ontario, annually and ensures that the Chief has the most current version.
To maintain clarity and traceability, a structured versioning system is used for the Base Plan and annexes. TEM manages and updates version numbers as part of the Base Plan revisions. This approach ensures users are referencing the most current guidance and supports transparency in the evolution of emergency management documentation.
Prior to 2025, the City’s Emergency Management Plan did not have version numbers. Now that the City has transitioned to a new planning structure, version numbers will be incorporated into the Base Plan and annexes going forward.
Toronto’s emergency response is structured to support coordinated action across all levels of the organization. Roles are activated based on the characteristics of the emergency, ensuring the appropriate teams are engaged as the situation unfolds. This section describes how leadership, support teams and frontline responders work together during an emergency.
Municipal elected officials, particularly the Head of Council (the Mayor), have key responsibilities under the EMCPA and Chapter 59. While municipal staff lead the implementation of strategic, operational and tactical activities, elected officials play an important role in strategic-level decision-making, particularly in areas related to governance, public communication and intergovernmental coordination.
Under the EMCPA, the Head of Council, the Mayor, has the authority to declare a local emergency for the City. The Mayor is the chair of the Emergency Control Group. The Control Group is outlined in Section 3.2. While this authority exists under the EMCPA, such a declaration is primarily procedural and communicative in nature. It does not provide the Mayor any additional powers beyond those outlined in Chapter 59.
Declaring an emergency can serve to emphasize the seriousness of a situation and facilitate coordination with other levels of government and external stakeholders. However, it does not create new legal authorities for the Mayor, nor does it suspend existing agreements.
The Mayor may terminate an emergency at any time and should do so when the declaration is no longer required. In addition, under the EMCPA, Council and the Premier of Ontario have the authority to terminate the Mayor’s emergency declaration at any time.
Neither the declaration of an emergency nor the exercise of the Mayor’s powers under Chapter 59 provides the City with automatic access to funding from provincial or federal governments. Access to such funding typically requires separate applications, agreements or approvals.
For example, Ontario maintains two disaster recovery programs: Municipal Disaster Recovery Assistance (MDRA) and Disaster Recovery Assistance for Ontarians (DRAO). Neither program requires a municipality to declare an emergency to be eligible.
MDRA may be activated by the Minister of Municipal Affairs and Housing following a natural disaster. To apply, a municipality must pass a resolution of council and submit an initial claim within 120 calendar days of the event.
DRAO is activated at the discretion of the Minister and does not require a municipal request. It provides financial assistance directly to affected individuals, small businesses, farms and not-for-profit organizations.
Separately, Chapter 59 delegates Council’s authority under the City of Toronto Act to the Mayor for use during an emergency, even if a formal emergency declaration has not been made. This authority is delegated to the Mayor under Chapter 59, Article 6.
This delegation empowers the Mayor to act independently, as a Council of one, to take actions and issue orders that are:
The Mayor may only exercise this delegated authority when all conditions outlined below are satisfied.
| Condition | Description |
|---|---|
| Timeliness | The authority is needed to address the emergency promptly |
| Effectiveness | The Mayor reasonably believes the action will alleviate harm and is a reasonable alternative to other measures |
| Proportionality | Actions must reasonably limit intrusiveness |
| Geographic scope | Authority is exercised only in necessary areas of the city |
| Duration | Authority is exercised only for as long as reasonably necessary |
All actions and decisions taken under this authority must comply with applicable legislation (e.g., EMCPA, City of Toronto Act and Chapter 59) and remain consistent with the scope and intent of the delegated emergency powers conferred under Chapter 59. There is also a time limit on this delegated authority.
The Mayor’s delegated authority under Article 6, Chapter 59, is effective for 30 days from the first exercise of that authority. To extend this authority beyond 30 days, Council must authorize the extension. If the 30 days lapse without Council approval of an extension, the delegation of authority ends.
Within 30 days of first exercising the delegated authority, the Mayor must submit a report to Council via the Executive Committee that includes:
Whether or not an emergency has been declared or the Mayor has exercised their delegated authority, the Mayor must keep Council informed of the City’s response to the emergency.
The Mayor also has obligations around notifying key personnel when exercising delegated authority and when declaring or terminating an emergency. These requirements ensure transparency and coordination across the City and with the provincial government.
Mayor Authority and Notification
When exercising delegated authority, the Mayor, through the Toronto Emergency Operations Centre, notifies Council within 24-hours.
When declaring an emergency, the Mayor immediately notifies Council, the Control Group, the provincial ministers responsible for emergency management and the public.
When terminating an emergency declaration, the Mayor immediately notifies Council, the Control Group, the provincial minister responsible for emergency management and the public.
During an emergency, whether or not an emergency has been formally declared, Council’s legislative authority under the City of Toronto Act is complementary to, not displaced by, the delegated powers to the Mayor.
As outlined in Section 3.1.1. Mayor, Council has delegated its authority to the Mayor; however, this delegation is conditional and only applies when the specific conditions described are met. If those conditions are not met, responsibility for decision-making remains with Council.
When urgent decisions are needed, Council may convene on short notice under the provisions for emergency meetings, as outlined in Chapter 27, Council Procedures of the Toronto Municipal Code. Council may be required for strategic and policy-level decision-making. Council would not be part of any tactical or operational level decision-making.
During an emergency, TEMPC transitions into the Emergency Control Group (Control Group), which directs the City’s strategic coordination efforts. Chaired by the Mayor, the Control Group provides overarching direction to the Toronto Emergency Operations Centre (TEOC) and DACs, ensuring the response aligns with the City’s broader goals and adapts to the evolving nature of the emergency.
Not all emergencies will require the Control Group to make decisions or direct response efforts. In many cases, DACs and City staff can manage impacts through existing mandates and authorities. In these situations, the Control Group may still be convened to maintain oversight and situational awareness, even if a full escalation of the City’s emergency response structure is not warranted. The City’s emergency response levels are described in Section 4.2. Response Levels.
Control Group members may formally request escalation of the City’s emergency response level when they identify a need for increased coordination. These requests are considered as part of the escalation process outlined in Section 4.3. Escalation.
Under Chapter 59, the Control Group can take specific actions during an emergency, whether or not an emergency has been formally declared by the Mayor (this authority is granted to the Control Group under Chapter 59, Article 7).
The responsibilities of the Control Group are outlined in the table below.
| Responsibility | Description |
|---|---|
| Implement the Plan | Initiate, coordinate, direct and implement the Emergency Response Plan and undertake other necessary activities to address the emergency |
| Expend funds | Expend funds for the purposes of responding to and recovering from the emergency |
| Secure volunteer support | Obtain volunteer support from public agencies and other persons |
| Advise the Mayor | Advise the Mayor on using their delegated authority and/or declaring and terminating an emergency |
| Keep Council informed | Support the Mayor in updating Council on the progress of the emergency response |
| Liaise with other levels of government | Liaise with other levels of government on areas of collaboration, cooperation, and assistance |
| Support resource management | Determine if municipal resources are adequate or if further resources are required |
| Designate a spokesperson | Ensure that a City spokesperson is appointed to provide a coordinated approach in directing public information activities within an acceptable timeframe |
The Control Group operates within the bounds of Council-delegated authority. Decisions must be escalated to Council when they:
The Control Group may initially meet virtually and determine if further in-person meetings are warranted. The TEOC and City Clerk’s Office provides secretariat support to the Control Group.
The membership of the Control Group is outlined in Chapter 59 (Article 3), establishes the Control Group membership and is summarized in the table below.
| Organization | Position |
|---|---|
| Council | Mayor (Chair) |
| Council | Deputy Mayor |
| City Manager’s Office | City Manager |
| Development and Growth | Deputy City Manager |
| Community Development and Social Services | Deputy City Manager |
| Community and Emergency Services | Deputy City Manager |
| Corporate Services | Deputy City Manager |
| Infrastructure Services | Deputy City Manager |
| Toronto Fire Services | Fire Chief and General Manager |
| Toronto Paramedic Services | Chief and General Manager |
| Toronto Public Health | Medical Officer of Health |
| Communications | Chief Communications Officer |
| People and Equity | Chief People Officer |
| Transportation Services | General Manager |
| Toronto Water | General Manager |
| Toronto Shelter and Support Services | General Manager |
| Legal Services | City Solicitor |
| Finance and Treasury Services | Chief Financial Officer and Treasurer |
| Toronto Building | Chief Building Official & Executive Director |
| Parks and Recreation | General Manager |
| Solid Waste Management | General Manager |
| Corporate Real Estate Management | Executive Director |
| Technology Services | Chief Technology Officer |
| Insurance and Risk Management | Director |
| Toronto Emergency Management | Executive Director |
| City Clerk’s Office | City Clerk |
| Environment, Climate and Forestry | Executive Director |
| Engineering and Construction Services | Executive Director |
| Toronto Police Service | Chief of Police |
| Toronto Transit Commission | Chief Executive Officer |
| Toronto and Region Conservation Authority | Chief Executive Officer & Secretary Treasurer |
| Toronto Hydro | Executive Vice-President |
Each Control Group member should have an alternate or designated representative with equivalent decision-making authority to ensure continuity in the event the primary member is unavailable. TEM maintains a confidential contact list with all primary and alternate members. It is the responsibility of the Control Group member to provide TEM with any updates to representatives.
The Toronto Emergency Operations Centre (TEOC) is the City’s central hub for coordinating emergency response across DACs. It also serves as a key point of contact with other levels of government and external stakeholders.
Other levels of government and external stakeholders may activate their own emergency operations centres (EOCs) in support of the response. City staff may be requested to attend these centres to facilitate inter-organizational coordination.
The TEOC translates strategic guidance from senior leadership into practical support for response measures, helping to ensure that resources, information and decisions flow effectively across the City’s emergency response system. It does not replace the command structure at the emergency site or within DACs, nor does it make tactical decisions.
Instead, the TEOC supports and aligns the City’s response efforts, ensuring that actions taken at the site and DAC levels are consistent with overall direction.
TEM maintains a primary facility for the TEOC that is fully equipped and ready for activation 24/7. This facility features robust telecommunications equipment, dedicated computing resources and large-format, multi-screen displays to support a stable and visible emergency response hub for the City. To ensure continuity of operations, TEM also maintains a back-up location.
The core responsibilities of the TEOC are summarized in the table below.
| Responsibility | Description |
|---|---|
| Information management | Receive and analyze data to maintain a common operating picture and ensure appropriate documentation |
| Support responders and DACs | Support emergency responders at emergency site(s) and enable DACs to manage the broader consequences of the emergency |
| Logistics coordination | Anticipate, mobilize and dispatch resources |
| Coordination | Coordinate efforts with other levels of government and external stakeholders |
| Business continuity management | Support city divisions to ensure their continued delivery of critical services during a disruption within acceptable timeframes |
| Support senior leadership | Support strategic decision-making by senior leadership, including providing secretariat support to the Control Group |
While the TEOC is capable of continuous operation, staffing levels and the pace of activities are adjusted based on the characteristics of the emergency. For example, during slow-developing or lower risk emergencies, the TEOC may reduce staffing or scale down operations after hours. In these cases, TEM’s On-Call Function remains available to DACs for notification of any time-sensitive issues requiring immediate attention.
Advancements in technology and communications infrastructure allow the TEOC to operate in physical, hybrid or virtual formats. This flexibility ensures continuity of operations when in-person staffing is not feasible or optimal.
Types of TEOC activations
The format of TEOC activation may evolve over the course of a response – for example, beginning virtually and transitioning to hybrid or physical as needed.
During an emergency or event that requires the TEOC, the Executive Director of TEM assumes the role of TEOC Director, overseeing operations to support coordinated action across the City. If the TEM Executive Director is unavailable, a TEM Director will assume responsibility as the TEOC Director. The key responsibilities of the TEOC Director are outlined in the table below.
| Responsibility | Description |
|---|---|
| Lead the TEOC | Oversees TEOC operations, including determining the appropriate activation format (e.g., physical, hybrid or virtual), approving the incident action plan and directing the staffing and structure of the Incident Management Team (IMT) |
| Liaise with the PEOC | Act as the primary liaison between the City and Provincial Emergency Operations Centre (PEOC), including notifying the province about an emergency impacting Toronto |
| Liaise with other municipalities | Coordinates with other municipal CEMCs and EOCs to share information and align response efforts |
| Request assistance | Requests assistance from other levels of government on behalf of the City when municipal resources are insufficient to support the emergency response, such as the Ontario Corps |
| Brief senior leadership | Provides situational updates and status reports to senior leadership |
| Support the Control Group | Facilitates communication between the TEOC and Control Group, ensuring the flow of accurate and timely information to support strategic decision-making |
Any request for additional support or assistance must be directed to the PEOC, in alignment with Ontario’s emergency management protocols. The PEOC assesses the situation and determines the appropriate level of engagement, including whether escalation to the federal government is warranted. The City of Toronto does not request support directly from the federal government. For more information, see Public Safety Canada’s Requests for federal assistance webpage.
The TEOC is organized using the Incident Management System (IMS), as outlined in Ontario’s Incident Management System (IMS) Guidance: Version 2.0. IMS is a best practice that the City has adopted and implements during responses.
Incident Management System (IMS)
IMS provides a standard structure for coordinating the response to an emergency, built on the principles of communication, coordination, collaboration and flexibility.
It defines key function roles – such as Operations, Planning, Logistics and Finance/Administration to support effective management of personnel, facilities, equipment, procedures and communications.
The Incident Management Team (IMT) refers to the staffing structure of the TEOC. Composed of City staff and other representatives, this team is responsible for carrying out the TEOC’s core responsibilities as outlined in Section 3.3. Toronto Emergency Operations Centre. The IMT is led by the TEOC Director.
The IMT structure is scalable and flexible, allowing staffing levels to be adjusted based on the characteristics of the emergency. The team typically includes:
Under the Incident Management System, the Toronto Emergency Operations Centre may activate the following functional sections, depending on the needs of the emergency:
The TEOC’s mission is to coordinate the City of Toronto’s response to and recovery from emergencies and major events.
When activated, the TEOC’s mission remains consistent for any type of emergency or major event.
The TEOC supports the continuity of critical services, facilitates coordination across DACs and serves as a key liaison with other levels of government and external stakeholders.
During a response, multiple and sometimes competing priorities may emerge. To address these effectively, the TEOC focuses on the following priorities:
The City is comprised of Divisions, Agencies and Corporations (DACs), each with distinct emergency management responsibilities aligned with their existing mandates.
While DACs routinely collaborate to manage hazards and major events, their day-to-day operations are governed by existing standards, policies, processes and procedures.
The Base Plan supplements these practices when elevated coordination is required. It does not replace DAC-specific plans but provides a framework for integrating efforts across the municipality.
During an emergency, DACs play a critical role in managing response efforts within their areas of responsibility.
As part of preparedness, DACs are expected to maintain a high level of emergency readiness by:
The table below summarizes the key responsibilities that DACs are expected to perform when the TEOC is activated.
| Responsibility | Description |
|---|---|
| Activate plans | Activate internal emergency response and business continuity plans |
| Support response | Tailor response measures to the characteristics of the emergency |
| Mutual assistance | Initiate mutual assistance agreements for additional support, or escalate requests for support from other levels of government or to the TEOC |
| Subject matter expertise | Provide subject matter expertise and leadership in their areas of responsibility |
| Assign staff | Assign staff to the TEOC, other DAC EOCs, site-level facilities and community facilities to provide subject matter expertise and decision-making ability |
| Situational awareness | Maintain situational awareness and report to the TEOC, Control Group and Elected Officials (as required) |
| Communication | Support public and employee communications and to Elected Officials (as required) |
| Coordination | Coordinate with DACs, counterparts in other levels of government and external stakeholders to ensure an effective response |
DACs implement a range of response structures depending on their mandate, resources and the characteristics of the emergency, as summarized in the table below.
| Structure | Description |
|---|---|
| Site facilities | DACs may activate tactical response structures at or near the emergency site, such as an Incident Command Post, to manage direct, on-the-ground response activities |
| Community support facilities | DACs may establish facilities beyond the immediate impact zone to support emergency responders and affected populations; these could include an Emergency Reception Centre, Emergency Information Centre or Family and Friends Assistance Centre |
| Internal EOCs | DACs may activate an internal EOC to coordinate their response efforts and serve as a liaison between site-level and community support facilities and the TEOC – some DACs may refer to their EOC as a Divisional Operations Centre (DOC) |
| Alternative models | DACs without an EOC may manage emergency response through existing organizational structures using internal processes and leadership appropriate to their mandate and level of involvement |
Standard Response Structure
Emergency response structure is organized across strategic, operational and tactical levels, with defined roles at each level to support effective decision‑making, coordination and response.
At the strategic level, Elected Officials (City Council) provide policy‑level decision‑making. Strategic decision‑making is supported by the Toronto Emergency Control Group.
At the operational level, the Toronto Emergency Operations Centre (TEOC) coordinates the management of resources, personnel and incident information. Divisions, Agencies and Corporations Emergency Operations Centres (DAC EOCs) provide site support and share information and resource requests with the TEOC.
At the tactical level, site‑level and community support facilities are established at or near the emergency site, or just beyond the immediate impact zone, to coordinate tactical response measures.
DACs may activate their response structures independently of TEOC activation. Likewise, activation of the TEOC does not automatically require DACs to activate their own response structures. If a DAC EOC is activating independently of the TEOC, they may inform TEM to provide awareness.
DACs may also continue operating their response structures even after the TEOC has been deactivated, particularly if localized or DAC response needs persist.
Some DACs operate from dedicated internal EOCs, distinct from their regular operations centres, to manage localized response and coordination. DACs without dedicated EOCs utilize their operations centres to fulfill the functions of an EOC during emergency responses.
The following DACs currently maintain internal EOC functionalities:
Since DACs may rely on one another during emergency responses, each DAC’s business continuity plan or internal response plans should identify and address any interdependencies to ensure coordinated and resilient operations.
Examples of site-level response structures
Examples of Community Support Facilities
The concept of operations defines how the City transitions from routine activities to emergency response. It outlines the mechanisms for notification, escalation and coordination across DACs and with other levels of government. This section provides a roadmap for mobilizing resources, assigning responsibilities and adapting to evolving conditions.
The City’s emergency response is guided by a set of principles that support coordinated, effective and equitable action across all response structures, as shown in the table below.
| Principle | Description |
|---|---|
| Proactive engagement | The City actively monitors incidents, assesses the adequacy of existing response measures and determines whether escalation or additional coordination is required |
| Informed decision-making | All staff involved in emergency response – at strategic, coordination and tactical levels – receive timely, accurate information to support effective and coordinated decisions |
| Equity-centred approach | An equity lens is applied to all response efforts, aligned with the Toronto Public Service values – this includes identifying barriers, ensuring access to critical services and supporting equity-deserving communities |
The City’s response levels categorize emergencies and guide the activation of the City’s emergency response structure. Each level corresponds to specific characteristics and informs decisions about resource allocation, personnel deployment and other response measures. These levels and their defining features are summarized in the table below.
| Response level | Level 1 | Level 2 | Level 3 | Level 4 |
|---|---|---|---|---|
| Status | Routine Monitoring | Enhanced Monitoring | Coordination Activation | Command Activation |
| TEM escalation protocol | TEM On-Call | TEM On-Call or assigned TEM staff | TEM On-Call to IMT | TEM On-Call to IMT |
| Emergency Response Plan | Not activated | May be activated | Activated | Activated |
| IMT status | Not activated | May be activated | Activated | Activated |
| Response structure | TEM | TEM + DACs (as required) | Control Group + TEM + DACs | Council + Control Group + TEM + DACs |
| TEOC status | Not activated | Not activated | Activated | Activated |
| Control Group | Not activated | Not activated | Activated + Informed | Activated + Decision making |
| DAC engagement | Contact as needed | Proactive information gathering | Formalized via TEOC | Formalized via TEOC |
| Council engagement | Not required | Not required | Not required | May be required; may convene during scheduled or special meetings |
| Mayor’s use of delegated authority | Conditions not met | Conditions not met | Conditions not met | Conditions may be met |
| Mayor’s declaration of an emergency | Not required | Not required | Not required | Possible |
| Request for support from other levels of government | Not required | Not required | Not required | Possible |
At Level 1, TEM’s On-Call Function monitors a range of sources, including weather forecasts, news reports and other forms of situational intelligence. The On-Call Function may also be notified about incidents by DACs, other levels of government and external stakeholders.
Once aware of an incident, TEM’s On-Call Function conducts a risk assessment to determine the appropriate emergency response level. This assessment draws on:
This level maintains a steady-state posture.
Level 2 begins when an incident or emerging risk (such as potential for severe weather) requires additional review and a more in-depth risk assessment.
The enhanced monitoring function is assigned to TEM’s On-Call Function and includes:
This level supports early coordination and preparedness across DACs.
TEM On-Call Function
TEM maintains an On-Call Function that serves as a central point of contact on a 24/7 basis for DACs regarding emerging issues and significant disruptions to service delivery. TEM On-Call is also the primary point of contact provided to the Provincial Emergency Operations Centre.
The On-Call Function is carried out by a TEM On-Call Coordinator and On-Call Manager, who work collaboratively to assess situations, initiate notifications and provide support to DACs.
This function serves as a vital link between steady-state operations and emergency response, enabling the City to maintain situational awareness and rapidly mobilize leadership and resources when needed.
It supports timely escalation in response to incidents, ensuring a seamless transition from routine operations to an effective response posture.
Level 3 begins when a situation requires activation of the TEOC to coordinate the City’s implementation of emergency response measures. This level may be triggered when the response exceeds the capacity of DACs to manage using their routine resources.
This level involves:
While the Control Group is not required to provide strategic direction at this level, it should be prepared to engage if the situation escalates.
Dispatch Centres and On-Call Duty Officers
DACs that operate around the clock typically maintain a 24/7 dispatch centre that supports regular service delivery, manages routine operations and facilitates internal coordination. Dispatch centres may notify TEM about a potential incident.
For some DACs that do not operate 24/7, continuous accessibility is maintained by assigning staff to serve shifts as on-call duty officers, ensuring that incidents can be addressed outside of regular business hours.
Level 4 begins when an incident has or is anticipated to result in significant threats to life safety, public health and well-being, infrastructure, the environment or the continuity of social and economic systems.
This level involves:
This level represents the City’s highest level of emergency response coordination.
Escalation refers to increasing the City’s response level to address an emerging incident or worsening conditions. It may be prompted by:
Escalation requires formal approval from the appropriate authority, or their designate. The table below outlines the approval process for each response level.
| Response Level | Can Be Escalated To | Approval Required From |
|---|---|---|
| Level 1: Routine Monitoring | Level 2: Enhanced Monitoring | TEM On-Call Coordinator in consultation with the On-Call Manager |
| Level 1: Routine Monitoring | Level 3: Coordination Activation | TEM Director in consultation with the On-Call Manager |
| Level 1: Routine Monitoring | Level 4: Command Activation | TEM Executive Director in consultation with the Deputy City Manager, Community and Emergency Services (or equivalent senior executive) |
| Level 2: Enhanced Monitoring | Level 3: Coordination Activation | TEM Director in consultation with the On-Call Manager |
| Level 2: Enhanced Monitoring | Level 4: Command Activation | TEM Executive Director in consultation with the Deputy City Manager, Community and Emergency Services (or equivalent senior executive) |
| Level 3: Coordination Activation | Level 4: Command Activation | TEOC Director* in consultation with the Chair of the Control Group |
During Level 3 and Level 4 responses, The TEM Executive Director is assigned the role of TEOC Director.
In urgent circumstances where delay may compromise public safety or the effectiveness of the response, TEM On-Call may temporarily escalate the response level. Immediate notification must be provided to TEM’s leadership team, followed by formal approval.
When the City’s emergency response level increases, timely notifications ensure that designated parties are informed and ready to initiate their internal activation procedures and response measures.
The table below outlines the entities that receive a notification when the City escalates to a higher response level.
| Notification to | Level 2: Enhanced Monitoring | Level 3: Coordination Activation | Level 4: Command Activation |
|---|---|---|---|
| TEM leadership and staff | Yes | Yes | Yes |
| Hazard-Specific Working Group | Yes | Yes | Yes |
| EMWG | No | Yes | Yes |
| Control Group | No | Yes | Yes |
| Councillor(s) | Yes | Yes | Yes |
If a Hazard-Specific Working Group has been established for the incident, TEM notifies the group at all response levels. If no such group exists, TEM identifies and notifies other appropriate personnel – such as the Business Continuity Working Group, subject matter experts, DAC leads, 24/7 dispatch centres or DAC on-call duty officers – based on the characteristics of the emergency.
Since the Mayor is the Chair of the Control Group, the Mayor does not need a separate notification.
Typically, only Councillors of impacted wards would be notified of an emergency; however, during a Level 4 response, all Councillors will be notified of the emergency, even if their ward is not impacted. TEM’s On-Call Function does not typically notify Councillors. Notification is typically completed by emergency services or other DACs through regular processes or through the City Clerk’s Office. A Councillor liaison function may be established during a Level 4 response to support information sharing with Councillors.
Notifications are generally initiated by TEM’s On-Call Function. If the TEOC is activated, it assumes responsibility for issuing notifications.
When the City’s response level escalates to Level 4, it is at the discretion of Toronto Emergency Management’s Executive Director – or the TEOC Director – to notify the province through the PEOC. Notification should be considered when an emergency:
This notification may be made in the absence of a formal municipal emergency declaration by the Mayor, or in the absence of the Mayor’s use of delegated authority. Upon receiving notification, the PEOC determines the appropriate type of provincial engagement.
Public notifications and emergency information may be delivered through multiple platforms to ensure that critical messages reach all affected residents, including vulnerable populations.
The City’s Emergency Information Officer (EIO) generally leads the coordination of emergency information. However, for specific notification types – outlined in the table below – emergency services or the CEMC (or TEOC Director, if activated) may take the lead in issuing a notification.
The public may be notified by one or more of the methods listed in the table below.
| Notification type | Description |
|---|---|
| City website and social media | Official updates are posted on the City’s website and alerts and updates are shared via verified social media accounts (e.g., Facebook, X, Instagram) |
| 311 Toronto | Emergency information recorded on 311’s interactive voice response |
| Media | Information shared through television networks, radio stations and newspapers |
| Public signage and community boards | Digital and physical signage at key locations such as municipal buildings, community centres and highway/roadway signage (variable messaging signs and portable variable messaging signs) |
| Door-to-door notification | When necessary and safe, emergency services staff, other City staff or volunteers may conduct direct outreach to inform residents |
| Alert Ready | Alerts broadcast to mobile devices, TV and radio in accordance with provincial guidelines |
Alert Ready is Canada’s emergency alerting system. Alert Ready delivers critical and potentially life-saving alerts to Canadians through television, radio and LTE-connected and compatible wireless devices. The City’s CEMC can request use of the Alert Ready system through the PEOC.
Scaling down refers to reducing the City’s response level once conditions stabilize or the urgency diminishes. This decision is based on:
The authority to scale down the City’s response level is determined by the level of response, as shown in the table below.
| Response Level | Can Be Scaled Down To | Approval Required From |
|---|---|---|
| Level 2: Enhanced Monitoring | Level 1: Routine Monitoring | TEM On-Call Manager, in consultation with the On-Call Coordinator |
| Level 3: Coordination Activation | Level 2: Enhanced Monitoring | TEOC Director, in consultation with the TEM On-Call Manager |
| Level 3: Coordination Activation | Level 1: Routine Monitoring | TEOC Director, in consultation with the TEM On-Call Manager |
| Level 4: Command Activation | Level 3: Coordination Activation | TEOC Director, in consultation with the Chair of the Control Group |
| Level 4: Command Activation | Level 2: Enhanced Monitoring | TEOC Director, in consultation with the Chair of the Control Group |
| Level 4: Command Activation | Level 1: Routine Monitoring | TEOC Director, in consultation with the Chair of the Control Group |
As the City scales down its response efforts, some operations may transition into recovery. This may involve a formal recovery team or be integrated into DAC-led operations.
Demobilization is initiated prior to formally scaling down the City’s response level. It applies primarily when transitioning from a Level 4 or Level 3 response to Level 2 or Level 1, indicating that centralized coordination through the TEOC is no longer required.
The TEOC Director initiates the demobilization process to scale down the IMT in a safe, orderly and efficient manner. This ensures that all necessary coordination and resource release activities are completed before the response level is officially reduced.
Key activities include:
After Action Process
The after-action process captures key observations, lessons learned and recommendations for improvement following an emergency. It is essential for continuous improvement and future preparedness.
While the process typically begins during the demobilization phase, it may continue into the recovery phase, even after the City has deactivated TEOC.
The after-action process includes:
TEM is responsible for leading the after-action review of the TEOC, Control Group and Mayor’s use of delegated authority and/or declaration of an emergency.
DACs may conduct their own after-action review for their areas of responsibility.
Deactivation follows demobilization and marks the formal closure of the TEOC, signifying the end of centralized emergency coordination and a transition down to Level 2 or Level 1 response level.
Once all IMT resources have been safely and efficiently demobilized, the TEOC Director confirms that centralized coordination is no longer required.
TEM then notifies DACs and external stakeholders of the TEOC deactivation and confirms the shift to recovery operations or a return to normal municipal functions.
| Date | Revision Summary | Version Number | Revised by | Approved by |
|---|---|---|---|---|
| May 2005 – September 2024 (annually) | Annual review and revisions of the City’s Emergency Management Plan, as per Chapter 59 | Not applicable | Toronto Emergency Management | Toronto Emergency Management Program Committee |
| October 2025 | New Base Emergency Response Plan that incorporates lessons learned from the COVID-19 pandemic and other emergencies, as per Chapter 59 | Version one | Toronto Emergency Management | Toronto Emergency Management Program Committee |