SurvivalRing - Civil Defense Now!

Civil Defense Now! Help this Database Grow...Help Share History By Richard A. Fleetwood - May 2001 The information on this page covers the STANDARDS FOR LOCAL CIVIL PREPAREDNESS. Created and updated to help municipal and larger government organizations to prepare towns and their citizens for some of the direct effects of nuclear weapons, namely blast waves and thermal ignition. The data below was scanned in and converted originally by Robin Hanus, and the zip file of it can be found on my SHELTER PLANS page, as well as Robin's website at www.bwolf.com. Thanks, Robin. STANDARDS FOR LOCAL CIVIL PREPAREDNESS Standards for Local Civil Preparedness CPG 1-5 November 1980 (Supercedes CPG 1-5, April 1978, which may be used) NOTICE This Civil Preparedness Guide, which was published by the former Defense Civil Preparedness Agency (DCPA), will continue in effect until revised and updated by the Federal Emergency Management Agency (FEMA). Any references to DCPA found in this publication shall be construed to mean FEMA. STANDARDS FOR LOCAL CIVIL PREPAREDNESS Developed jointly with the National Association of State Directors for Disaster Preparedness, and the United States Civil Defense Council. Developed in cooperation with: The Council of State Governments National Association of Counties National League of Cities and United States Conference of Mayors International City Management Association American National Red Cross International Association of Chiefs of Police International Association of Fire Chiefs International Association of Fire Fighters National Fire Protection Association National Sheriffs' Association U.S. Civil Service Commission U.S. Department of Health, Education, and Welfare, Public Health Service NOTE TO READERS This 1978 edition of the Standards is updated from the 1972 version in several ways. Some of the Standards have been revised to reflect the concept of risk orientation. This means that larger cities and other jurisdictions which could face blast and other direct effects of nuclear weapons need certain additional elements of preparedness. For example, an EOC providing some degree of blast protection is desirable in a high risk jurisdiction, and warning fanout to the public must be rapid. In the 1972 version, emergency planning was covered in Standard Five. This has been changed to Standard Three, since emergency planning provides a basis for establishing requirements for facilities and equipment and for trained personnel (now covered in Standards Four and Five, respectively). The concept of Nuclear Civil Protection (NCP) has been added to Standard Three, on emergency planning. NCP plans provide for two options: (1) Protection of the population essentially in-place, at or near their places of residence, (2) Orderly relocation of people from high-risk areas to low-risk host jurisdictions during a period of severe international crisis, should time and circumstances permit implementation of relocation plans. NCP planning for the relocation option is expected to be conducted into the 1980's, with direct Federal support and the consent and participation of States and localities.   Note for Civil Preparedness Directors or Coordinators: These Standards for Civil Preparedness have been developed jointly by local, State, and Federal civil preparedness professionals. They are provided as an aid in implementing the major emphasis of civil preparedness. This emphasis aims at improving the ability of local governments to act swiftly and effectively to save life and preserve property if the community is threatened or hit by any kind of emergency or disaster-whether a peacetime emergency or enemy attack upon the United States. This requires making effective, coordinated use of all assets available to the community, from the executive talents of its top officials; to its police, fire and other forces; to its ambulances, hospitals, and medical professionals; to shelters to protect its citizens. This in turn requires emphasis on people and training them to work together. These Standards should be used in training new and experienced local Civil Preparedness Directors/Coordinators at Federally conducted or sponsored training activities, and in on-site assistance or conferences at the community level. The Standards are also intended for use by local Directors in analyzing the level of readiness of their community, as a basis for making improvements. If you are a new local Director or Coordinator, we recommend you look first at the outline of duties at pages 1 to 2 of the Standards. Then you will want to look at Standard Two for more details. If you are a new Director or Coordinator in a smaller rural community, we would like to call to your attention the discussion on emergency plans for the smaller jurisdictions at pages 20 to 21. The Standards should be brought to the attention of county commissioners, mayors, and city managers-both individually and at meetings of their associations. It should be stressed that both the Federal Government and the States are doing everything they can to help local governments to improve their readiness for emergencies-but that success depends, in the last analysis, on the support given by local chief executives. CONTENTS INTRODUCTION Purpose of Standards.................................................................................1 Duties of Local Civil Preparedness Directors/Coordinators.............1 Background for Use of Standards...........................................................2 Use of Standards..........................................................................................2 Building Emergency Readiness...............................................................2 "Fully-Qualified" vs. "Minimum-Level" Standards...............................2 Risk Areas.......................................................................................................2 STANDARD ONE - ORGANIZATION AND ADMINISTRATION OF CIVIL PREPAREDNESS 1. Statement of Purpose................................................................................5 2. Joint-Action vs. Individual Jurisdiction Approach.............................5 3. Organizing Local Civil Preparedness Action.......................................5 4. Administration of Local Civil Preparedness Program.......................6 STANDARD TWO - THE LOCAL CIVIL PREPAREDNESS DIRECTOR/COORDINATOR 1. Position and Responsibilities of the Local Civil Preparedness Director/ Coordinator.........9 2. Civil Preparedness Staffing for Jurisdictions of Various Sizes................................................10 3. Selection, Qualifications, and Salary of Local Director/Coordinator.......................................11 4. Professional Training and Growth...................................................................................................12 STANDARD THREE - TANGIBLE COMPONENTS OF EMERGENCY READINESS.- LOCAL GOVERNMENT EMERGENCY PLANS Need for Local Emergency Plans.........................................................................15 Local Planning Process..........................................................................................15 Hazard Analysis........................................................................................................15 Organization and Content of Local Government Emergency Plans...........16 Nuclear Civil Protection Planning.........................................................................16   1. Fully-Qualified Emergency Planning Standard...........................................17   2. Minimum-Level Emergency Planning Standard..........................................21 STANDARD FOUR - TANGIBLE COMPONENTS OF EMERGENCY READINESS: FACILITIES AND EQUIPMENT 1. Emergency Operating Center................................................................23 2. Shelter..........................................................................................................23 3. Radiological Defense...............................................................................24 4. Warning System........................................................................................25 5. Emergency Communications................................................................26 6. Emergency Public Information..............................................................26 7. Law Enforcement......................................................................................27 8. Fire Service.................................................................................................27 9. Rescue.........................................................................................................27 10. Emergency Medical..................................................................................27 11. Public Works Engineering......................................................................27 12. Emergency Welfare..................................................................................28 13. Schools.......................................................................................................28 STANDARD FIVE - TANGIBLE COMPONENTS OF EMERGENCY READINESS: TRAINED PERSONNEL 1. Training Required for Local Government Personnel.....................................................................29 2. Training for Personnel Required to Supplement or Extend Governmental Capabilities......30 3. Training for the Public............................................................................................................................34 STANDARD SIX - INTANGIBLE COMPONENTS OF EMERGENCY READINESS: ABILITY TO EXECUTE EMERGENCY PLANS Evaluating Local Ability to Execute Plans...................................35   1. Fully-Qualified Readiness Standard.....................................35   2. Minimum-Level Readiness Standard....................................36 INTRODUCTION These Standards for civil preparedness have been developed jointly by Federal personnel and representative State and local civil preparedness Directors/Coordinators. The term "civil preparedness Director/Coordinator" is used in recognition of the variation in both the official title and duties of the position, in States and localities throughout the Nation. It means the person who is primarily responsible to coordinate and lead in developing civil preparedness - whether he (or she) is called the "Civil Defense Director," the "Disaster Services Coordinator," or by any similar title. A companion piece to the Standards is the shorter Summary for Public Officials (CPG 14). The Summary stresses the "why" of civil preparedness, and outlines the "what" in no more detail than public officials are likely to need. The Standards, in contrast, contain additional details on the ‘what’- the specifics of civil preparedness. The Standards are intended for use primarily by civil preparedness Directors and staffs at local, State, and Regional levels. Purpose of Standards The Standards, agreed upon by Federal, State, and local representatives, are provided as a basis for professionalizing and improving local civil preparedness. They contain criteria on specifics of the training and professional competence needed by the local civil preparedness Director/Coordinator, and also on the specifics of readiness for local government operations in major emergencies or disasters. The basic purpose of the Standards, developed by knowledgeable civil preparedness professionals, is to assist local governments in developing the capability to save lives and preserve property should the jurisdiction be affected by any type of major emergency or disaster. Effective civil preparedness in local governments throughout the United States is an essential part of the nation's defensive posture. In addition, local jurisdictions must be prepared to deal with major peacetime emergencies that threaten life and property. Nearly all capabilities, forces, and procedures needed in major peacetime emergencies would also be needed in emergencies caused by enemy attack upon the United States. Thus, all actions taken to strengthen the ability of local government to deal with peacetime emergencies will strengthen attack preparedness (and the reverse is also largely true). Duties of Local Civil Preparedness Directors/Coordinators The duties outlined below are typical of those performed by the local civil preparedness Director/Coordinator in non-emergency periods, to develop readiness for operations in emergencies: 1. Develop an Emergency Operating Center (EOC) facility, a protected site from which key local officials control operations. 2. Develop EOC staffing and internal procedures to permit key local officials to conduct coordinated operations in emergencies. 3. Conduct tests and exercises to give key local officials practice in directing coordinated operations under simulated emergency conditions. 4. Provide expert knowledge and advice to operating departments on the special conditions and operating requirements that would be imposed by peacetime or attack disasters. 5. Develop local government emergency operations plans, outlining which local forces and supporting groups would do what, in both peacetime and attack disasters, and specifying local organization for major emergencies. 6. Establish system to warn the public of peace-time or attack disasters. 7. Establish system to alert key local officials. 8. Organize radiological monitoring and analysis system, including procurement of instruments and training and exercising of personnel. 9. Coordinate and lead emergency communications planning, secure necessary equipment, and exercise emergency communications. 10. Coordinate with doctors, hospitals, and public and private sector medical personnel to develop emergency medical plans and capabilities, as part of local emergency plans. 11. Establish and maintain a shelter system. 12. Establish and exercise an emergency public information system and train personnel to utilize it. 13. Coordinate with welfare offices, and the Red Cross and other voluntary groups, to develop emergency welfare capabilities to care for people needing mass care as a result of peace-time or attack disaster. 14. Coordinate and maintain relationships with industry to develop industrial emergency plans and capabilities in support of local government emergency plans. 15. Assist local operating departments (e.g., fire, police, public works) with radiological defense and other training needs. 16. Coordinate and participate in training programs for the public on disaster preparedness. 17. Assist in the establishment of mutual aid agreements to provide needed services, equipment or other resources in an emergency. 18. Prepare, submit, and justify the annual civil preparedness budget. 19. Secure matching funds and other assistance available through the civil preparedness program, and through other Federal programs (includes preparing annual program papers and other documents required for Federal assistance programs). Background for Use of Standards It is assumed that users of these Standards are familiar with what civil preparedness is and is not: That it is not a separate function set apart from the normal responsibilities of government, or a special unit or group of people standing by to save the day in case of a major disaster. That the forces responsible for civil preparedness emergency operations are the normal forces of government, together with any trained auxiliaries needed-plus non-governmental personnel or groups with emergency capabilities, such as voluntary groups, doctors, and hospital and news media staffs. And that emergency operations require coordinated action by all forces with lifesaving capabilities, under the leadership and direction of key local executives. The concept of civil preparedness is further discussed in the Summary for Public Officials that is a companion piece to these Standards. Use of Standards The Standards provide guidelines - not a "bible" - for developing and improving civil preparedness. Local, State, and Regional Civil Preparedness professionals should use them as a primary reference in the preparation and review of Local Program Papers, and in On-Site Assistance projects. The Projected Program Activities portion of the local program paper provides a means for local governments to list their goals and objectives to improve preparedness in areas which do not meet these Standards. An annual program paper is required of local governments participating in Federal assistance programs. Building Emergency Readiness These Standards outline the work that each jurisdiction should do to build emergency readiness. Standard One deals with the steps needed to establish and run an effective civil preparedness program in a community. Standard Two establishes criteria for the local civil preparedness Director/Coordinator. Standards Three to Five deal with the tangible assets that provide the basis for local emergency readiness. These include local government emergency plans, facilities and equipment, and trained personnel. Standard Six is the most important of all. It deals with the intangible elements of overall local readiness, which boil down to assuring that all people or groups with emergency responsibilities are actually prepared to "do the right thing at the right time." This means that the jurisdiction has done the planning and exercising that add up to the "mechanics of coordinated disaster response," and can make these mechanics work when they are needed. The primary means to develop this ability is through realistic exercises based on simulated emergencies, unless of course the jurisdiction has suffered an actual peace- time emergency. "Fully-Qualified" vs. "Minimum-Level" Standards Standards Three through Six describe two levels of qualification. One is the "fully-qualified" standard which if attained in all areas, means that the jurisdiction has reached and is maintaining a high level of readiness for peacetime or attack-caused emergencies. This level will result in most cases from the efforts of an energetic, professional local civil preparedness Director/Coordinator who receives strong support from the citizens and the elected and appointed officials. Not many jurisdictions can now be evaluated as fully-qualified, but a number of them need to make improvements in only a relatively few areas to reach the fully-qualified level. The ''minimum-level'' standard represents a degree of local readiness that many local governments have attained, and that all others should strive to attain as rapidly as possible. It provides a minimum level of readiness for continuing operations under nuclear attack conditions. This level, in many areas, provides for substantial reliance on "crisis activation" of capabilities needed for attack emergencies-such as training additional Radiological Monitors. At the same time, this minimum indicates readiness to cope with moderate scale peacetime emergencies. No jurisdiction should remain at the minimum level, however, for the development of local emergency readiness is a dynamic process. A jurisdiction im- proves and grows in readiness or it declines. Regional and State civil preparedness agencies are working together to foster qualitative improvement in each jurisdiction. The On-Site Assistance process, when available, provides intensive help by a State- Regional team working in the jurisdiction. These teams assist local officials to evaluate their existing level of readiness and to develop, and then carry out, a plan of action to improve readiness. Other jurisdictions should use the Standards to develop their own action plan for improvement, pending the availability of direct assistance from the State/Region. The action plan should then become a part of the annual program paper. Risk Areas Some of the Standards set forth below vary from one jurisdiction to another based on the potential hazards or risks facing the locality. A "hazard analysis" will identify the specific risks a jurisdiction may face. Generally, the following factors are associated with a high degree of risk: (1) Attack Effects - Publication TR-82, "High Risk Areas," identifies areas which could face high risk of blast and other nuclear weapons effects should the United States be attacked. State and Federal personnel can assist local jurisdictions in identifying more precisely the nuclear weapons effects that risk areas could receive. (2) Natural Disasters - Frequent occurrence of, or potential for, natural disasters in a specific area constitutes a risk to the population. (3) Other Hazards - Some jurisdictions may face potential risks such as major aircraft or industrial accidents, accidents at nuclear power plants, other hazards of a technological nature, or emergencies resulting from an energy shortage. STANDARD ONE ORGANIZATION AND ADMINISTRATION OF CIVIL PREPAREDNESS DISCUSSION This Standard outlines steps needed in the organization and administration of civil preparedness, and includes information on budget levels needed to support civil preparedness programs. Standard One primarily applies to single counties, cities, or other local jurisdictions. However, jurisdictions will often find it advantageous to join together in "joint-action" civil preparedness programs. This includes employing a full-time professional civil preparedness Director/Coordinator, who can work with chief executives and heads of operating departments in the counties or other jurisdictions in the area, help them develop emergency plans and preparedness, and assist in coordination of operations should an emergency occur. STANDARDS 1. Statement of Purpose Each local jurisdiction needs an officially approved statement of purpose for its civil preparedness program. In some States it appears in the State statute and is applicable to all localities. In some States it is desirable to include it in local ordinances (see item 3b below). In any case, it should be incorporated in the local government's emergency plan (see Standard Three). A sample Statement of Purpose is as follows: "It is an operational assumption of the Civil Preparedness program that existing agencies of government will perform emergency activities related to those they perform in normal times. Auxiliary groups will be formed and trained, under the direction and control of the operating department of government they are to support, and non-governmental groups will be assigned emergency missions, as necessary to develop a capability to augment, or supplement, existing agencies of government in responding to emergencies. A basic purpose of the local civil preparedness agency, and its (Director) (Coordinator), shall be to provide for coordination of the operations of all such governmental and non-governmental forces in emergencies, and to provide those unique civil preparedness skills and capabilities not available in existing government organizations. The civil preparedness (Director) (Coordinator) shall also inform the operating departments of government of those special conditions arising out of a nuclear attack which would call for a modification of traditional operating techniques." The foregoing statement of purpose, or one similar, clearly distinguishes the civil preparedness agency, and its Director/Coordinator, from the operating agencies of government. Hence, civil preparedness is not the police department or the fire department, nor does it desire to usurp their roles; but these departments are a part of civil preparedness action. The civil preparedness agency is a coordinating agency, and a reservoir of unique skills and capabilities. 2. Joint-Action vs. Individual Jurisdiction Approach The decision to establish and maintain a separate civil preparedness program or to join with one or more other jurisdictions to form a joint agency should be decided by fully considering the resources, the hazards, the people, and the jurisdiction's requirements. Each jurisdiction should determine, in conjunction with the State civil preparedness agency, whether it should establish and maintain its own civil preparedness program, or whether its needs will be better met by joining together with one or more other jurisdictions. The joint-action approach usually results in more progress for a given investment, particularly in the case of counties or municipalities of low population. Joint programs are often advantageous even for cities and counties with a larger population. Joint-action arrangements are usually voluntary, and each jurisdiction involved must agree to participate, by appropriate official action. However, some States' statutes may require some form of joint action. The State civil preparedness office can advise whether the State statutes authorize joint action for civil preparedness, and if so, what local ordinances or resolutions would need to be enacted. The State can also give advice on how other joint-action arrangements (if any) in the State have worked out, and on such practical details as the sharing of costs between the jurisdictions involved. Where a jurisdiction decides to enter into a joint-action arrangement with one or more others, the steps described in the balance of this Standard must be adapted as required by the fact that two or more jurisdictions are involved.  3. Organizing Local Civil Preparedness Action The following eight-step checklist is provided as a guide in organizing for local civil preparedness. It should be followed to the extent applicable in a specific jurisdiction, adapting the steps as necessary in light of the local situation (including any adaptations required by a joint-action approach): a. Meeting of Executives - The chief executive and his department heads should be brought together to be oriented on the civil preparedness program and to be made aware of their emergency responsibilities. Representatives of the State civil preparedness agency will frequently be available to assist in the conduct of this meeting. b. Ordinance - Unless provided for by State statute, local legislation must be enacted to provide legal authorization and support for the local civil preparedness program and activities, both in normal times and during emergency periods. It should include an appropriate Statement of Purpose, and should be in conformance with State legislation. If there is a model ordinance for use in localities within the State, this should be used as a point of departure, with local legal counsel adding any special provisions needed locally. The civil preparedness ordinance or other appropriate ordinance should extend the authority of local government to non-government personnel who may support regular government forces during an emergency (e.g., auxiliary policemen, or shelter managers). c. Local Civil Preparedness Director/Coordinator - The local chief executive or other appointing authority must select an individual with the education, experience, initiative, and imagination needed to coordinate and carry forward, on behalf of the chief executive, a civil preparedness program for the protection of the population and of public and private property. If the jurisdiction is participating in a joint-action arrangement with other jurisdictions, the Director/Coordinator must be acceptable to each participant. (See Standard Two.) d. Training of local Director/Coordinator - The Director/Coordinator must take training available from or through the State civil preparedness agency, to begin developing the professional expertise he (or she) requires. (See Standard Two.) e. Hazard Analysis - The local Director/Coordinator assisted if necessary by State or Regional personnel, should prepare a "hazard analysis" for the jurisdiction. Potential hazards from nuclear attack are identified in Publication TR-82, "High Risk Areas", and State and Federal personnel can assist local jurisdictions in identifying peacetime hazards to which they may be exposed. f Initial Assessment of Local Emergency Readiness - The local Director/Coordinator assesses the jurisdiction's existing level of emergency readiness using these Standards. This assessment may be made by the Director/Coordinator himself, or it may be conducted with advice and assistance from State or Regional personnel. The assessment covers both tangible and intangible elements of readiness, as outlined in Standards Three through Six. It should be prepared in close conjunction with local operating department heads and the chief executive. This assessment should take into consideration those risk factors which may influence particular Standards. g. Development of Action Plan to Increase Readiness - Based on this initial assessment, the local Director/Coordinator develops an "action plan" covering specific steps to increase local readiness, including both short and long-term actions. State and Regional assistance may be available in the development of the local action plan, and the action plan may specify State or Regional assistance to be provided to the locality. Actions may include procuring equipment or facilities needed for emergency operations, training, emergency planning, and exercising the local emergency organization and plan. h. Development of a Local Program Paper - After assessing the current status of local preparedness, the local Director/Coordinator may wish to use the local Civil Preparedness Annual Program Paper to set forth an orderly plan for the improvement of those preparedness items below minimum Standards. Although the programming portion of the form is required for local participation in Federal assistance programs, localities should avail themselves of this management aid even if no assistance is being requested. 4. Administration of Local Preparedness Program a. Federal and State Assistance - The local Director/Coordinator must see that the jurisdiction participates to the maximum in Federal and State assistance available for the civil preparedness program- This includes matching funds for personnel and administrative expenses, matching funds for supplies and equipment, loans of excess Federal property, grants of radiological monitoring equipment, and other assistance. Through fully funded contracts, the Federal government provides other forms of support particularly for training and planning designed to improve local readiness. Details are available from the State civil preparedness agency. The local Director/Coordinator should also become familiar with assistance available under other Federal programs which can strengthen local emergency capabilities, such as grants or assistance in such areas as law enforcement, highway safety ambulance procurement, and emergency medical services. b. Budget - Experience shows that an adequate level of funding is essential to the development of effective local emergency readiness. Funding must include local appropriations, but total funding can be increased up to double the local investment by obtaining Federal matching funds for eligible expenses. The level of funding required for developing local emergency readiness varies somewhat from one part of the country to another, and may vary even for two similar localities within a single State, depending on the tasks assigned to the local civil preparedness agency. State civil preparedness agencies can advise on funding levels required for a given local jurisdiction, taking into account special local circumstances or assignments. The fact that smaller jurisdictions require higher per capita funding to provide even minimum-austere preparedness is a strong argument for the joint-action approach discussed above. By pooling funds, smaller jurisdictions can often get improved emergency readiness at lower per capita cost. STANDARD TWO THE LOCAL CIVIL PREPAREDNESS DIRECTOR/COORDINATOR DISCUSSION The selection, development, and retention of a competent, professional local civil preparedness Director or Coordinator is of major importance to all jurisdictions. With such a professional, jurisdictions will be better able to attain an adequate level of readiness to conduct lifesaving operations in major emergencies, whether peacetime or attack-caused. This Standard outlines the responsibilities of the position, and establishes criteria for the employment of local Directors/Coordinators, for their training, and for appropriate salaries. The fact that this Standard describes the functions and responsibilities of a professional Director/Coordinator does not necessarily mean that this should be a person who has no other duties. Larger jurisdictions will require a full-time professional, but in smaller jurisdictions, civil preparedness may not be a full-time job, just as many other functions of government do not require full-time employees. However, local Director/Coordinator duties should be performed by a competent and professionally qualified person who: (1) will be able to function on a full-time basis as a Director/Coordinator during periods of emergency; (2) has received adequate training; (3) has the confidence and support of the elected heads of government; and (4) can work effectively with the other agencies and services in the jurisdiction. STANDARDS 1. Position and Responsibilities of the Local Civil Preparedness Director/Coordinator a. Position - Each jurisdiction shall be served by a professionally competent local civil preparedness Director/Coordinator, who shall report directly to the chief executive, or whomever the chief executive designates. Where two or more jurisdictions support a civil defense agency under joint- action arrangements, the Director/Coordinator shall report directly to each of the chief executives, or to a council of chief executives or similar group, as established by the participating jurisdictions. b. Responsibilities in Non-Emergency Periods - The essence of the Director/Coordinator's job in non-emergency periods is to act on behalf of the chief executive to build readiness for coordinated operations in both peacetime and attack-caused emergencies. This requires working with the operating departments of local government, with non-governmental groups, and with the public. These are primarily staff, not 'command," functions. Where the Director/Coordinator serves un- der joint-action arrangements, the responsibilities described below apply to each participating jurisdiction. Major responsibilities of the local Director/Coordinator include: (1) Taking the lead in coordinating the development of emergency preparedness, e.g.: (a) Development of local government emergency plans outlining which governmental forces and supporting groups will do what, under various emergency contingencies, by coordinating the planning of all departments and groups with emergency missions (as out- lined in Standard Three). (b) Development of an Emergency Operating Center (EOC) facility (or facilities, as required), as well as EOC staffing and internal procedures to permit key executives to control coordinated operations by local forces, under emergency conditions (as outlined in Standards Four and Six). (c) Arranging for exercises to give local officials practice in directing coordinated operations under simulated emergency conditions (as outlined in Standard Six). (2) Developing unique skills and capabilities not found in existing departments of government (e.g., development of radiological monitoring, warning, damage assessment, and shelter systems, including trained personnel; and assisting police, fire, and other operating departments with radiological defense and other training needs (as outlined in Standards Four and Five). (3) Providing or arranging for training needed by the public at large (as outlined in Standard Five). (4) Administering the jurisdiction's civil preparedness program. The test of the Director/Coordinator who is doing the job well can be briefly stated: Is he (or she) taking the lead effectively in developing local capabilities to conduct coordinated operations in extraordinary emergencies, making maximum use of all public and private resources available to local government? To be an effective Director/Coordinator requires two things: (1) The necessary personal qualities, and professional training and expertise; and (2) the active support of the chief executive and of the local governing body. The chief executive is responsible for all emergency preparations, and this responsibility cannot be delegated. But, the Director/Coordinator should be delegated the authority needed to develop emergency readiness, working with the heads of key operating departments that have emergency responsibilities. The Director/Coordinator can, and desirably should, assist the chief executive and local government in additional areas, growing out of his responsibilities in building emergency preparedness. For example, he may develop expertise in procedures and criteria for Federal-assistance programs other than the civil preparedness program, and be able to assist local department heads in applying for assistance in such areas as law enforcement, highway safety, communications procurement, or emergency medical services. c. The Director/Coordinator's Responsibilities During Emergencies - During a peacetime or attack-caused emergency, the chief executive is in overall command. The sheriff or chief of police, fire chief, and other department heads command the operations of their forces. Hospital and news media staffs, and other groups with emergency responsibilities, carry out their functions in coordination and cooperation with the emergency operations of governmental forces. During emergencies, the Director/Coordinator acts as principal advisor or aide to the chief executive on local government emergency operations. His major responsibility is to assure coordination among the operating departments of government (and with higher and adjacent governments), primarily by seeing that the Emergency Operating Center functions effectively. He also assists the chief executive in assuring execution of operations, plans, and procedures required by the emergency. 2. Civil Preparedness Staffing for Jurisdictions of Various Sizes a. Local Director/Coordinator - The local civil preparedness Director/Coordinator must be available for emergency duty 24 hours a day, 7 days a week, if or when an emergency occurs. The amount of effort he (or she) needs to invest in developing emergency readiness depends upon the amount of work to be done, and this is closely related to the size of the jurisdiction. Minimum standards for employment of a Director/Coordinator are as follow, subject to reasonable modification to meet local needs and situations: (1) A full-time paid Director/Coordinator shall be employed (a) in all cities of approximately 25,000 population or greater; (b) in all counties of approximately 15,000 population or greater; and (c) in all joint-action groupings of two or more jurisdictions. (2) A paid Director, working at least half-time, shall be employed (a) in cities between approximately 5,000 and 25,000 population; and (b) in counties between approximately 5,000 and 15,000. In both instances, however, the employment of a full-time Director/Coordinator is strongly recommended. The half-time Director/Coordinator shall be a person also serving the local government in some other non-elective paid capacity (with total employment being full-time), unless otherwise approved by the State. (3) Jurisdictions of less than approximately 5,000 population shall employ a Director/Coordinator meeting each of the following criteria, except if specifically waived by the State on a case-by-case basis: (a) The Director/Coordinator shall serve local government in some other, non-elective paid capacity (total employment being full- time or as near thereto as feasible). (b) As a minimum, the Director/Coordinator shall work no less than 8 hours per week on civil defense and disaster preparedness duties, and as much additional as required to conduct an adequate program as described in these Standards. (c) The Director/Coordinator shall be paid a salary commensurate with the extent and difficulty of the duties of the job and with other salaries paid by local government. b. Supporting Staff-At least a half-time paid Deputy Director/Coordinator should be employed in jurisdictions with between approximately 50,000 and 75,000 population, and a full-time paid deputy should be employed in jurisdictions with more than approximately 75,000 population. In all jurisdictions, competent persons should be designated and trained for civil preparedness functions such as operations, shelter, communications, and radiological defense-to carry out these functions in emergencies as well as to assist in developing readiness for emergencies. In larger jurisdictions, these positions should be full-time paid, to assure professionally competent services, rather than assigning the functions to other government employees, "in addition to regular duties." The need for such professional positions within the local civil preparedness agency will depend in part on how many elements of the program have been delegated to operating departments (e.g., the fire department or health department may handle the radiological defense program). In small jurisdictions, specialist positions such as Radiological Defense Officer may be filled by a suitably qualified volunteer, such as a college or high school physics instructor, or an engineer from a local industry. The possibility of securing a military reserve Mobilization Designee (MOBDES) to fill such positions should be considered- State civil preparedness offices can assist in securing MOBDES personnel - In all jurisdictions, the local Director/Coordinator requires stenographic or typist support. In smaller jurisdictions the stenographer or typist can often assume additional duties, and act as an administrative assistant. c. Minimum professional Staffing of Civil preparedness Agency-Total civil preparedness agency professional staffing (the Director/Coordinator plus other professionals, not counting clerical or stenographic employees) will vary considerably from one jurisdiction to another, depending on local organization and the tasks assigned. State civil preparedness agencies can advise on staffing levels required by specific local jurisdictions, in light of local conditions and needs.   The following standards for minimum professional staffing are provided as general guidance, subject to reasonable adaptation to meet local needs: Population                                                  Equivalent Full-Time (Approximate)                                          Professional Positions Over 1,000,000                                              15 to 40 500,000 to 1,000,000                                      6 to 15 250,000 to 500,000                                          4 to 6 100,000 to 250,000                                          3 to 5 50 to 100,000                                                    2 to 3 25 to 50,000                                                   1¼ to 2 15 to 25,000                                                      1 to 1¼ 5 to 15,000                                                       ¼ to 1 Under 5,000                                                   1/5 to ¼ 3. Selection, Qualifications, and Salary of Local Director/Coordinator a. Selection - Vacancies in paid civil preparedness Director/Coordinator positions shall be filled by selection procedures designed to secure the best- qualified person available. Local governments may elect not to give their Director/Coordinator merit- system tenure, although the position should provide reasonable job security if it is to be filled by a well-qualified professional. If the jurisdiction needs assistance, State personnel departments or civil preparedness agencies can provide guidance on selection procedures. A written job or position description should be developed for the Director/Coordinator position, and State civil preparedness agencies can provide examples. Selection procedures include; (1) Wide publicity, to get as many qualified applicants as possible; (2) administering a written test, if desired (bearing in mind that most people with poor scores on a written test will not do well on the job, but that there is no assurance that all people with high scores will do well); (3) oral interview by a board of 3 to 5 local government executives or others experienced in job interviews and selection of employees; (4) personal interview by the local chief executive of the highest-ranked candidates, to select the candidate who appears to be best qualified, and who would be compatible with the chief executive and his department heads; and (5) a probation period of six months to a year for the candidate to prove himself capable on the job. Similar selection procedures should be used in filling other professional positions in the local civil preparedness agency. b. Qualifications - The oral interview board and chief executive should look for the following experience and personal traits in applicants for the local civil preparedness Director/Coordinator position: (1) Experience - Applicants should have experience of 1 to 6 years (depending on the size and needs of the community) in such areas as: (a) Planning, organizing, coordinating, implementing, and directing a major phase of a local government program, or a program of a major business or industry; or (b) Providing emergency or safety services for large groups of people and requiring frequent contacts with public officials; or (c) Organizing a community-wide program involving large numbers of citizens to engage in a civic program on a volunteer basis. (2) Personal - Since the bulk of the Director/ Coordinator's responsibilities will involve contacts with the heads of local government departments, as well as officials from other government levels, applicants should show leadership qualities, and an ability to manage and coordinate the civil preparedness program. In addition, applicants should have the ability to meet and deal with the public effectively, and be reliable and trustworthy. According to field studies, personal traits considered important for the civil preparedness Director/ Coordinator, by chief executives and other local officials, included enthusiasm for the job, ability to work with others, integrity, friendliness, cooperativeness, ability to coordinate and expedite, administrative ability, and reputation and stature within the community. Probably the most important single personal trait is dedication to the civil preparedness program. In evaluating candidates, interview boards and chief executives should keep in mind the duties of the local Director/Coordinator in emergency periods. They should ask themselves, "Would I place confidence in the recommendations and advice of this applicant, in making decisions that could affect the preservation of life and property, in an emergency affecting this jurisdiction?" c. Salary - The salary provided for the position of civil preparedness Director/Coordinator must be adequate to attract and retain a competent professional. This requires paying a salary commensurate with those for other local government positions of a similar degree of difficulty and responsibility. Where a person already serving in local government is assigned the additional duties of part-time Director/Coordinator, an appropriate salary should be paid for the additional duties. State civil preparedness agencies can advise on salaries paid in communities of similar size and complexity that have competent, professional local Directors or Coordinators, who are conducting adequate civil preparedness programs as described in these Standards. 4. Professional Training and Growth A person selected for the position of Director/ Coordinator should either have or soon get the special knowledge and skills needed to perform the tasks described in Standard Two. a. Qualifications-The unique professional qualifications required by the Director/Coordinator primarily include: (1) Ability to prepare the community to conduct coordinated emergency operations under extraordinary circumstances where normal cooperative procedures are not sufficient. This is the most important single qualification. (2) Ability to provide for developing unique emergency skills and capabilities not found in operating departments (e.g., warning, shelter, radiological defense). (3) Ability to advise operating departments of special disaster conditions that would call for modification of normal operating techniques. These range from fallout and other effects of nuclear weapons, to conditions created by other hazards that could affect the jurisdiction. The Director/Coordinator must be the person in government who analyzes such potential hazards, and their effects on local operations. b. Professional Training - Standards for professional training of the Director/Coordinator are set forth below. Note that training standards are related to the size of the jurisdiction, and thus to the type of Director/Coordinator it should have- not necessarily the type of Director the jurisdiction actually has. (1) Smaller jurisdictions (approximately 5,000 population or less): First year, successfully complete the home study courses "CD, U.S.A.," "The CD Director/Coordinator," and "Introduction to Radiological Monitoring," and in addition, attend a basic management work- shop conducted by the State agency, when such a workshop is available. Every second year thereafter, attend an NCP seminar or advanced workshop if available. In addition, complete Phase I of the Career Development Program within two years and any new home study course for local Directors/Coordinators within one year from the time such courses become available. It is also highly desirable that Directors/Coordinators enroll in the remaining phases of the Career Development program, which is the primary vehicle for continued professional training, and in courses in the areas of emergency operations planning and radiological defense. (2) Medium sized jurisdictions (cities approximately 5,000 to 25,000, counties 5,000 to 15,000): The Director/Coordinator shall meet the first-year criteria in (1) above and shall in addition complete Phase I of the Career Development program within the first 16 months of employment. In the second and each succeeding year, the Director/Coordinator shall attend a State-conducted workshop or seminar, if available. In the second or third year, he or she shall complete Phase II of Career Development. In addition, it is highly desirable that in subsequent years he or she complete Phases III and IV of the Career Development program, and courses in emergency operations planning and radiological defense. (3) Larger jurisdictions (cities over approximately 25,000, counties over 15,000): The Director/Coordinator shall meet the first and second year criteria in (2) above and shall also successfully complete Phases III and IV of the Career Development program during the third and fourth years. In addition, it is highly desirable that the Director/Coordinator successfully complete additional Civil Preparedness courses, including the Career Development Graduate Seminar, and courses in emergency operations planning and radiological defense, as well as college or university courses in public administration or fields related to the professional development of the Director. The courses specified above are those now available, and this Standard will be revised if and as other relevant training becomes available. The efforts of a competent and qualified Director/Coordinator are the key to emergency readiness. Professional training, in turn, is essential to being an effective local Director/Coordinator. Therefore, the training specified above must be completed (or have been applied for) unless the State, with Regional concurrence, evaluates the local Director/Coordinator's job experience and study as being equivalent to the formal training described. Experience in actual disaster operations should be given special weight in evaluating equivalent experience. (However, successful completion of the Career Development program requires actual completion of the Phase II, III, and IV courses; i.e., equivalent study or experience can be substituted for Phase I only ) c. Staff Training - Staff members of the local civil preparedness agency, other than the Director/ Coordinator, shall take professional training as required for adequate job performance. Standards for training of professional staff members (paid and volunteer) are set forth below. (Standards for training of radiological defense personnel are set forth in Standard Five, and standards for training and exercising the local EOC staff are in Standard Six.) (1) Smaller jurisdictions (approximately 5,000 population or less): All professional staff members shall successfully complete the home study course "CD, U.S.A." In addition, it is highly desirable that professional staff members complete other available home study courses concerning skills or knowledge needed in their positions, and attend State-conducted workshops and NCP seminars if attendance is approved by the State and training is available. (2) Medium-sized jurisdictions (cities approximately 5,000 to 25,000, counties 5,000 to 15,000): Staff members who serve as Deputies or in equivalent roles shall receive the same training as specified for the Director/Coordinator in a jurisdiction of this size (see item b(2) above). Other professional staff members shall successfully complete the home study course "CD, U.S.A."; shall attend a State-conducted workshop or NCP seminar every second year, if attendance is approved by the State and training is available; and shall complete home study and resident courses which cover areas in which particular staff members require specialized skills or knowledge (e.g., courses in emergency operations planning such as the Civil Preparedness Planning Workshop and in radio- logical defense.) In addition, it is highly desirable that such other staff professionals complete other available home study and resident courses, including Phases I and II of the Career Development program. (3) Larger jurisdictions (cities over approximately 25,000, counties over 15,000): Staff members who serve as Deputies or in equivalent roles shall receive the same training as specified for the Director/Coordinator in a jurisdiction of this size (see item b(3) above). All other professional staff members shall successfully complete the home study course, "CD, U.S.A."; shall attend a State-conducted work- shop or NCP seminar every second year, if attendance is approved by the State and training is available; and shall complete home study and resident courses which cover areas in which particular staff members require specialized skills or knowledge (e.g., courses in emergency planning such as the Civil Preparedness Planning Workshop and in radiological defense). Those other staff members who serve full-time shall successfully complete Phases I and II of the Career Development program. In addition to the foregoing, it is highly desirable that staff professionals other than those serving as Deputies or in equivalent roles complete other available home study and resident courses. (4) Professional experience and study may be substituted for the formal training outlined above, if evaluated by the local Director/Coordinator as equivalent, and if the State concurs in this evaluation. (However, successful completion of the Career Development program requires actual completion of the Phase II, III, and IV courses; i.e., equivalent study or experience can be substituted for Phase I only.) (5) In jurisdictions of any size, all newly assigned military reserve Mobilization Designee (MOBDES) personnel shall complete the home study course "CD, U.S.A." In addition, it is highly desirable that MOBDES personnel take additional home study and resident courses as agreed with the local Director/Coordinator. For suggested MOBDES training, see Annex C of Civil Preparedness Guide 1-11, "Defense Civil Preparedness Mobilization Designee Program"; special consideration should be given to the Emergency Readiness Exercise Development Course. STANDARD THREE TANGIBLE COMPONENTS OF EMERGENCY READINESS: LOCAL GOVERNMENT EMERGENCY PLANS DISCUSSION This standard establishes criteria for the emergency plans that provide a basis for local readiness. Also, the process of emergency planning allows the jurisdiction to establish its requirements for facilities and equipment (Standard Four) and for trained personnel (Standard Five). Thus, emergency planning is a prerequisite to all other emergency readiness activities. Need for Local Emergency Plans Conducting coordinated operations in peacetime or attack-caused emergencies is basically executing or carrying out local emergency plans. The payoff from emergency operations is the lives that are saved and the property that is preserved. This payoff results from the forces that have emergency missions doing "the right thing at the right time," making maximum effective use of existing resources and capabilities. Taking prompt and effective action in emergencies is facilitated by planning. Experience in peacetime disasters has shown repeatedly that when emergency plans are known to the heads of local operating departments and their forces, and operations are conducted in accordance with these plans, reaction times are reduced and coordination improved. On the other hand, "paper plans" prepared by the civil preparedness Director/Coordinator alone, with little participation by local operating departments, are of little value-because they are not used. Thus the development of a written plan is not an end in itself, because having a written emergency plan does not guarantee that actual operations will be effective. But the process of planning that leads to the development of a written plan is extremely valuable. This is because the local officials who are responsible for emergency operations have spent time determining which local forces will do what, should various emergencies arise, and how operations will be coordinated. Written plans are valuable for training, and to familiarize new local executives with their duties in emergencies. Plans also provide a point of departure for Increased Readiness actions to improve and activate civil preparedness capabilities in periods of heightened risk, such as a hurricane watch or an international crisis. Local Planning Process The local government's emergency plan should therefore document and reflect a planning process conducted by a local government planning team. This team should include representatives from each department of local government with an emergency mission, and from each non-governmental group to which such a mission should be assigned (e.g., news media, county medical society, Red Cross Chapter). The chief executive himself should if possible participate in the work of the planning team. The emergency planning process should be led and coordinated by the local civil preparedness Director/Coordinator, on behalf of the chief executive. As part of this planning leadership, the Director/Coordinator is responsible to inform the planners of local operating departments, as well as non-governmental planners, of the special conditions arising out of nuclear attack or peacetime disasters that would call for a modification of traditional operating techniques. Training and on-site assistance in local emergency planning includes the Civil Preparedness Planning Workshop and assistance from professionals of the State and the Regional offices. In many jurisdictions, the local planning agency can play an important role in emergency planning, working in close cooperation with the civil preparedness Director/Coordinator and planners of the operating departments. Hazard Analysis The starting point for local emergency planning (or for updating existing plans) is an analysis of specific hazards deemed likely to confront the jurisdiction. Publication TR-82, "High Risk Areas", identifies general areas which could face high risk from blast and other nuclear weapons effects should the U.S. be attacked. State and Federal personnel can assist local jurisdictions in identifying more precisely the nuclear weapons effects they could experience. State and Federal personnel can also assist local Directors in identifying potential peacetime hazards (e.g., slowly developing natural disasters such as hurricanes or floods; rapidly developing natural disasters such as earthquakes, tornadoes, or flash floods; and technological emergencies such as major air crashes, major industrial accidents, transportation or nuclear-reactor accidents involving a potential radiological hazard, or energy shortages.) The hazard analysis thus specifies the threats for which the local plan will outline the who, what, where, and how of coordinated emergency operations. Accordingly, hazards should be described as specifically as possible. For example, the analysis for a coastal jurisdiction should specify the area that could be flooded by a storm surge caused by a hurricane, and the number of people who should therefore be evacuated during the warning period. Organization and Content of Local Government Emergency Plans No standard format or organization is specified for a local government's emergency plan. Some States have established formats for local plans, to assure compatibility with the State's emergency plans, and where this is the case, local plans should be in the State's format. While the organization of local plans is not specified, there are a number of emergency functions that should be covered in the plans of each local jurisdiction. First, it is essential that the local plan outline the organizations, systems, and procedures which add up to the jurisdiction's basic emergency operating capability. This refers to the jurisdiction's ability to handle any of the types of major emergencies identified in the hazard analysis. The elements of this basic operating capability are usually reflected in the jurisdiction's Basic Plan and in certain additional parts or annexes in the overall local emergency plan. The Basic Plan is a relatively brief "umbrella" for the balance of the emergency plan, and as such covers organization, responsibilities, and operations in any type of emergency. The parts of the local plan which reflect the basic operating capability are those of general applicability, outlining functions needed in any emergency severe enough to call for coordinated emergency operations. These supporting parts of the plan are often designated as annexes to the Basic Plan, and should cover: (1) Direction and Control, spelling out local emergency organization for centralized direction of coordinated operations by key officials. Emphasis is on EOC organization and functions. (2) Warning, spelling out responsibilities and procedures for warning the population of impending threats. (3) Emergency Communications. (4) Emergency Public Information, spelling out responsibilities and procedures for getting official information and instructions to the public promptly, before, during, and as necessary after an emergency. Radiological Defense for both peacetime and attack emergencies is sometimes also covered in an annex of general applicability. However, it is preferable to cover radiological defense operations for attack emergencies separately from those for peace- time emergencies (e.g., a transportation accident involving radioactive material, or a severe accident at a nuclear power plant). This is because different concepts of operation, assessment methodologies, and protective actions are involved in peacetime radiological emergencies. The balance of the local plan addresses operations which may be required in specific types' of emergencies. One method of organizing a local plan is illustrated in Annex 1 to FCDG Appendix G-l .2,2 a plan for the "City of Brownville". In addition to a Basic Plan and annexes thereto, the Brownville example includes separate "Parts" for differing situations and hazards (e.g., enemy attack, natural disaster), and each Part includes annexes as required to spell out operations by local government departments. The Brownville plan is provided as an example only, however, with no implication that local plans must follow the same format. Additional guidance on emergency planning is provided in CPG 1-6, "Disaster Operations," and publication MP-67, "Improving Your Community's Emergency Response." Nuclear Civil Protection Planning The Federal government encourages and assists localities in full-spectrum emergency planning, including a range of potential peacetime hazards as outlined above. However, it is also essential (and required as a condition of eligibility for Federal assistance) that each jurisdiction's emergency plan provide for civil defense operations during periods of severe international crisis and of attack. The term Nuclear Civil Protection (NCP) planning refers to development of plans providing the following two options: (1) Protection of the population against nuclear attack effects essentially in-place, in jurisdictions throughout the U.S., at or near their places of residence. (2) Orderly relocation of people from areas of potential high risk from the direct effects of nuclear weapons, should national authorities elect to implement relocation plans during a severe crisis, and time and circumstances permit relocation, as well as the reception, care, and protection of relocated people in low-risk host areas. NCP planning for the in-place protection option includes development or updating of both (1) a local community shelter plan (CSP) allocation, including standby information materials for the public; and (2) emergency plans, based on the CSP allocation, covering local government operations for sheltering the population. This type of NCP planning has been underway since 1966, and many localities will need to update in-place protection plans, as new shelter surveys provide a basis for revising CSP allocations. Surveys and operations plans in low-risk areas will continue to stress fallout protection, while those in high-risk areas will be based on use of best-available blast as well as fallout protection. NCP planning for the relocation option includes both local and State4evel planning for relocating people from high-risk areas, during a period of severe international crisis, to low-risk jurisdictions. High-risk jurisdictions thus require plans covering operations to relocate the people during a crisis, and then to maintain security in the risk area, to keep essential industry in operation by commuting key workers, and to shelter any persons still in the risk area in best-available shelter should an attack occur. Low-risk host jurisdictions, in contrast, require plans covering reception and care of relocated population, and provision of fallout protection for use in case of attack. NCP planning is risk-oriented, in that plans needed by high-risk and low-risk jurisdictions will differ, as outlined above. Also, most low-risk jurisdictions will need plans for the contingency of hosting risk-area population in case of crisis relocation. Some low-risk jurisdictions, however, are far enough from high-risk areas that they will not need to act as host areas; NCP plans in such low-risk communities need cover only in-place fallout protection for the residents. Certain additional nuclear-related contingencies should be covered in local emergency plans, where applicable. These may include (1) plans for peacetime radiological emergencies (e.g., a transportation accident involving radioactive material, or a severe accident at a nuclear power plant); (2) plans for warning the population should warning ever be received of an accidental missile launch, or any other unauthorized or unexplained incident involving a possible detonation of a nuclear device; and (3) plans for a possible threat by terrorists or criminals, involving an alleged nuclear device or weapon. Also, the amount of detail contained in a local emergency plan is determined by the population of the jurisdiction, the shelter and other resources it has, and the size and complexity of its governmental structure. In a smaller rural county, civil preparedness requirements are not as complex as in a large city, and the emergency plan should be correspondingly less elaborate. STANDARDS 1. Fully-Qualified Emergency Planning Standard Each jurisdiction shall have an emergency plan developed by an interdepartmental planning process as discussed above, plus checklists or standing operating procedures, as required. The plan shall be based on currently existing resources and operational capabilities-not on assumed capabilities that do not exist. Where the jurisdiction is participating with one or more others in a joint-action arrangement, a combined emergency operations plan may be pre- pared (e.g., a city-county plan). Such plans shall cover operations by the forces of all jurisdictions involved, and shall specify arrangements for direction and control by the executives concerned. a. Jurisdictions of Approximately 5,000 Population or More - The jurisdiction's plans cover each of the functions or elements below that is applicable. If the State has specified a format for local plans, this shall be followed. Otherwise, local plans may be organized either by function or by governmental department, with all necessary functions assigned to an appropriate agency. (1) CSP Shelter Allocation - A shelter allocation has been developed, based on Community Shelter Planning (CSP), and specifying what all of the people in the jurisdiction should do or where they should go, in case of attack emergency (e.g., to public shelter and/or to home basements). This allocation must be updated periodically to reflect current shelter survey data, population changes, or other factors. In high-risk areas, the allocation provides for use of space providing best-available blast as well as fallout protection; if an All-Effects Survey has been completed for the jurisdiction, best-available blast protection identified by the Survey has been used in the CSP allocation. In low-risk areas, the allocation provides for use of best-available fallout protection; if a Host Area Survey has been completed for the jurisdiction, best-available fallout protection identified by this survey should be used in the allocation, plus consideration of home basements. Public information materials have been prepared, based on the CSP allocation, containing advice for each citizen in the jurisdiction on "where to go and what to do" in case of attack warning. These materials may have been published and distributed in peacetime, but newspaper mats or photographic negatives must be available, to permit redissemination during a crisis period as local "news" rather than an information project funded by the Federal Government. (2) Basic Plan and Annexes - The jurisdiction has developed those parts of the overall emergency plan needed to outline its basic 'emergency operating capability, including a Basic Plan and supporting parts or annexes outlining functions needed in any severe emergency. The Basic Plan is a brief "umbrella" for the balance of the emergency plan. It shall include planning assumptions, based on a hazard analysis identifying peacetime and attack-caused hazards that have or might reasonably be expected to affect the community. It includes a brief statement of the purpose of civil preparedness in the jurisdiction. (See Standard One.) It also assigns emergency missions to the departments of local government, and to non-governmental groups, and designates the person in charge of decision-making during an emergency (i.e., the chief executive). It references any mutual-assistance agreements with other jurisdictions, and covers procedures for requesting military or other State or Federal assistance. It shall be signed by the chief executive, and have any other approvals necessary under local or State law. The Basic Plan and annexes should be reviewed and as necessary updated to assure the plans are current. Supporting parts of the local plan, applicable in any type of emergency, may be designated as annexes to the Basic Plan, and may include: (a) Direction and Control - This part of the plan covers operation of the EOC, to permit direction and control of coordinated operations by key officials. It shall include duties of each member of the EOC staff including the Radiological Defense Officer (RDO), displays, internal EOC procedures, etc., and use of locally available communications for operations directed from the EOC. If the community has public shelters, the organization of shelters (e.g., into shelter complexes, with headquarters reporting to the EOC) shall be identified. (b) Warning - Covers procedures for receipt of warning of peacetime hazards or enemy attack, and for dissemination of warning to the population by all means available (may include warning assignments for siren-equipped vehicles), as well as procedures for alerting key officials. (c) Emergency Public Information - Planning for emergency public information includes making written agreements with radio, television, or Community Antenna Television facilities serving the jurisdiction for disseminating warning information to the public. Plans also include operations by news media to support local government in getting emergency information to the public promptly, by establishing procedures for a centralized source of official guidance and instructions for the people in a major emergency. For the nuclear attack threat, the plan shall include provisions for crisis use of "In Time of Emergency" newspaper, radio, and television materials, and dissemination of local Community Shelter Planning instructions for the public, as well as Crisis Relocation Planning instructions. Written agreements should be made for dissemination of EPI materials to the public. (3) Plans for Major Contingencies - Depending upon the size and complexity of the community, and the potential emergencies identified by the hazard analysis, additional contingency-oriented plans will usually be required, such as a hurricane disaster plan. These may be designated as major subordinate "Parts" of the local plan if the Brownville format is used. As applicable, the jurisdiction has developed plans covering: (a) Increased Readiness Operations - includes overall local plans for operations in periods of heightened risk (e.g., hurricane watch, or international crisis). Where the locality must bring its EOC, public shelters, or other facilities to full operational status during a crisis, or conduct accelerated training, the IR plan shall spell out who/what where. (See Standards Four and Five.) Standard Four describes requirements for crisis shelter marking and stocking plans, as part of overall local Increased-Readiness plans. IR plans for periods of severe international crisis cover general operations to improve readiness, in both high-risk and low-risk jurisdictions, applicable primarily to readiness to protect the population in-place. Should States or localities be advised that operations are contemplated for crisis relocation of population from high-risk areas (see subparagraph (d) below), crisis relocation plans would be implemented. (b) Operations in Peacetime Emergencies - Covers overall local plans for operations in peacetime emergencies that the hazard analysis has identified as potential threats to the community (e.g., tornado, major industrial or transportation accident, radiological incident, earthquake, civil disorder, hurricane, air pollution, flood, and emergencies created by an energy shortage). Annexes or appendices shall be included as necessary to spell out functions of local operating departments or services with emergency responsibilities. Appropriate checklists and standing operating procedures shall be included as necessary (e.g., inventories of publicly or privately owned operational equipment available to the jurisdiction; and call-up and alerting lists). Annexes and standing operating procedures are discussed in subparagraphs (4) and (5) below. (c) Nuclear civil Protection Plans for In-Place Protection - The jurisdiction has developed operational plans, based on the CSP shelter allocation, for operations to protect the population in best-available shelter against attack effects. Plans cover actions during attack emergencies, from Attack Warning and movement to shelter through the In-Shelter and Shelter Emergence periods. Annexes or appendices, and standing operating procedures, shall be included as necessary, as discussed below. (d) Nuclear civil Protection Plans for the crisis Relocation Option - The jurisdiction has, if applicable, developed plans for the contingency or option of crisis relocation. (Note: In-depth planning for the relocation option will be undertaken primarily as assistance becomes available from Federally-supported NCP planners. However, localities should develop plans as thoroughly as possible, with State assistance, pending availability of assistance from NCP planners. Such assistance may not be available for some local jurisdictions for several years.) Plans for high-risk jurisdictions cover (i) allocation of risk-area population to appropriate host jurisdictions, including preparation of standby emergency information materials for the public; and (ii) risk-area operations for the initial relocation movement, for providing security in the risk area, for keeping essential industry in operation through commuting key workers from nearby host areas, and for sheltering persons still in the risk area in best-available blast protection in case of attack. Plans for low-risk host jurisdictions cover operations for (i) reception and care of relocatees from risk areas (e.g., temporary lodging, feeding); and (ii) provision of fallout protection for both residents and relocated risk-area population. State4evel plans will provide for logistic support of relocated population (e.g., provision of food to outlets in host jurisdictions, medical support, and law enforcement support.) Host-jurisdiction planning for fallout protection will be based on results of the Host-Area Survey, which identifies best-available fallout protection, as well as facilities whose protection factor against fallout can be improved by actions taken during the crisis period. (e) Post-Shelter Operations - Covers local actions for the conservation and use of life-supporting resources (food, petroleum products, etc), in consonance with the State Emergency Resources Management Plan. (4) Annexes or Appendices - These cover missions, functions, and operational execution of plans on a department-by-department or function-by-function basis. Separate annexes (e.g., for police operations) are normally prepared for peace time emergency and for attack operations, although in some cases a single annex may suffice. Each of the following functions that is applicable in the jurisdiction shall be covered (and additional functions, if necessary): (a) Radiological Defense - A radiological defense (RADEF) Annex must be developed by each jurisdiction having responsibility for the direction or conduct of emergency operations. This Annex should cover operations in NCP contingencies as applicable, and provide for the protection of people and resources by means of an ready radiological defense system. For each jurisdiction, the Radiological Defense System shall include (in order of priority) (i) a shelter radiological monitoring capability; (ii) a self-protection radiological monitoring capability to provide self monitoring by personnel in emergency services, vital facilities and essential industries (police, fire, public works, hospitals, power plants, food distribution, etc.), and exposure control for emergency workers during emergency operations in the post shelter period; (iii) a radiological monitoring, reporting and assessment capability to provide a network of weapon effects reporting stations (monitoring stations) and an analysis and assessment capability within the EOC; and (iv) a radiological decontamination capability. RADEF operations should also be included in the annexes of the appropriate emergency services-e.g., fire, police, public works, rescue, medical. A detailed SOP should be completed and coordinated with operating organizations where applicable for the following: (i) distribution of RADEF sets in bulk repositories; (ii) the shelter annex; (iii) EOC operations, including analyses and display of RADEF information in the EOC's, and the receipt of aerial monitoring data from the State; (iv) radiation exposure control of emergency workers in recovery operations; (v) decontamination; (vi) crisis training of radiological monitors for shelters; (vii) crisis augmentation of additional RM's for weapons effects reporting stations and for emergency services and vital facilities; and (viii) crisis augmentation of RADEF personnel assigned to EOC operations. Separate annexes should also be developed for those peacetime radiological hazards to which the jurisdiction may be exposed (see CPG 1-6 on Radiological Accidents and Nuclear Facility Accidents, if required for the jurisdiction). (b) Fire - Covers operations of the regular fire service, as augmented by any trained auxiliaries (Support Assistants for Fire Emergency). (c) Rescue - Covers operations of all rescue services (may be included in annex of responsible service, e.g., the fire department). (d) Police - Covers operations of police or sheriffs forces, as augmented by any trained auxiliaries. For the nuclear attack threat, in localities with public shelters, covers police assignments to assist movement to shelter, and for maintenance of law and order in shelters. In all localities, provides for security of vital facilities. Where crisis relocation planning has been conducted, police plans of low-risk host jurisdictions cover operations for traffic control, including movement control and parking for risk-area population assigned to the host jurisdiction, and other law enforcement activities. (e) Public Works Engineering - Covers operations of city or county engineering or public works departments, local utilities, plans for radiological decontamination of vital facilities and essential industries, etc. In low-risk host jurisdictions PWE plans should cover operations, if needed, for crisis actions to improve fallout protection of "upgradable" facilities identified by the Host-Area Survey, and also for crisis construction of expedient shelters, if needed. (f) Emergency Health and Medical-Health - medical operations are normally the responsibility of the local health department, but can only be accomplished with the active cooperation of the health professions and the staffs of hospitals and other medical facilities. Therefore, this annex shall be prepared by or in close cooperation with the local medical society, hospital administrators, and others concerned. Also, hospital disaster plans and the health-medical annex(es) of the local government emergency plan shall be related to and in consonance with each other. Where appropriate, plans shall cover use of Packaged Disaster Hospitals available in the local jurisdiction. In many jurisdictions, "Emergency Medical Services Councils" can be a valuable source of assistance in planning and operations. The Joint Commission on Accreditation of Hospitals requires an accredited hospital to have developed a disaster plan which is rehearsed at least once a year, preferably as part of a coordinated disaster exercise in which other community services participate. The local civil preparedness Director/Coordinator should work with the appropriate hospital administrators, and the local medical society, to assure that such disaster plans are realistic in terms of (1) the disasters that might occur, and the resulting case load; and (2) resources that are available in the jurisdiction. (g) Emergency Welfare - The local welfare department is responsible for emergency operations, but the annex shall be prepared in close cooperation with the American Red Cross chapter and pther voluntary agencies that have emergency welfare capabilities. Plans for peacetime emergencies shall pro- vide for feeding and sheltering (housing) of persons displaced by a major disaster. Any understandings with the Red Cross or other non-governmental agencies shall be included. Where crisis relocation planning has been conducted, emergency welfare plans of low- risk host jurisdictions emphasize operations for reception and care of risk-area population assigned, including temporary lodging in "congregate care" facilities identified by the Host-Area Survey. (h) Schools - School disaster plans shall be related to and in consonance with local government emergency plans, and shall therefore be developed by or in close cooperation with school officials. (i) Industry - Industrial disaster plans shall be related to and in consonance with local government plans, and shall be developed by or in close cooperation with industry representatives. (5) Standing Operating Procedures - These shall be developed by operating departments concerned, as necessary to supplement and detail annexes. An SOP important to both peacetime and attack-emergency operations is an inventory of publicly and privately owned operational equipment or resources that would be available to the jurisdiction in emergencies (e.g., earthmoving equipment). SOP's for attack emergencies shall include provision for sheltering the dependents of emergency service personnel (e.g., policemen, firefighters, auxiliaries). Other SOP's that may be needed include warning system procedures, call-up or alerting lists, RADEF system procedures, decontamination priorities and procedures, and specific traffic control and shelter assignments of police and other personnel. All governmental and auxiliary personnel with emergency assignments should be issued an appropriate identification card. b. Fully-Qualified Emergency Planning Standard for Jurisdictions of Approximately 5,000 Population or Less-Emergency plans shall cover all operations and functions required, similar to those outlined above for larger jurisdictions. The operations required would be fewer and less complex, however, and the plan accordingly less elaborate. Nuclear Civil Protection (NCP) plans will differ for high-risk and low-risk jurisdictions. Many smaller low-risk jurisdictions will need plans for hosting operations should crisis relocation be implemented; Federally-supported NCP planners will provide direct assistance for this type of contingency planning. Other low-risk jurisdictions may not need to act as host areas in case of crisis relocation, and their NCP plans would need to cover only operations for protecting their own residents from fallout. High-risk jurisdictions on the other hand will need to provide for best available blast protection to accommodate the needs of essential workers who commute to the risk area. In a smaller rural county, the CSP shelter allocation may call for most of the people to use the basements of their homes for shelter, and to improvise additional fallout protection there, with a relatively few people to move to public shelters. If few homes have basements, the citizens would have to be instructed on how to improvise fallout protection (above ground, in homes, or by constructing earth-covered shelters outdoors). Increased-Readiness actions, to be taken during an international crisis, would include getting CSP-type information to the people, on where to go, and what to do in case of attack. Emphasis would be on the fallout hazard, how to improvise additional protection, and how to protect live- stock, and plans should provide for the use of "In Time of Emergency" newspaper, radio, and television materials. Other Increased-Readiness actions may include training Radiological Monitors for shelters and any additional Radiological Monitors needed for weapons effects reporting stations and for self-support of emergency services and vital facilities; training additional Shelter Managers if needed for public shelters; or improvising an EOC facility. If crisis relocation plans were implemented, host jurisdictions would complete preparations for, and then undertake, operations for reception and care of population from high-risk areas. In most cases, crisis actions to develop additional fallout shelter would be essential. In case of attack, warning to go to fallout protected areas would need to be disseminated by all means available. The county would need weapons effects reporting stations with communications to a Radiological Defense Officer at the EOC. The RDO would analyze the reports and make estimates of the length of time people would need to remain in shelter, for broadcast to the population. These analyses would be supplemented by information and advice on the fallout hazard from the next higher level EOC, normally a State area or district headquarters. The key county officials at the EOC would need communications to cities or villages within the county: to a point of entry to the Emergency Broadcasting System, to permit broadcasting information to their citizens; to EOC's in adjoining counties; and to the State area EOC. These could be primarily telephone. Only in exceptional cases would there be a need for large-scale emergency operations during the warning and in-shelter periods. In counties with a large amount of public fallout shelter, as in a cave or mine, law enforcement forces would need to assist the people to move to shelter, by traffic- control and parking operations. If a nuclear weapon burst in or near the county, organized firefighting operations would be needed if people in shelters were threatened by fire. In the absence of such conditions, fire, police, and other forces would take shelter from fallout in the same way as the rest of the citizens. After fallout radiation had decayed to the point where the population could leave shelters, county government would be responsible for public safety1 health, and welfare operations to assist their own citizens, as well as any injured or uninjured survivors from damaged areas. They might also be called upon to send forces to assist in operations in damaged areas, and they would need to institute relatively simple procedures for the emergency control and use of food, gasoline, and other life essential resources and initiate decontamination procedures. Smaller jurisdictions can meet the fully-qualified standard for emergency planning by; (1) Developing a written plan according to State guidance or formats covering operations required, including any necessary alerting lists; or (2) Developing a Basic Plan as outlined in Civil Preparedness Guide 1-6, "Disaster Operations, A Handbook for Local Governments", July 1972; plus warning plans, alerting lists, etc., as required by the State civil preparedness Director/Coordinator. The action checklists in the Handbook, for attack-caused and peacetime emergencies, may be used as part of the local plan, provided that blanks in the checklists have been tilled in as specified by the State (e.g., where to request support in various types of emergencies). This alternative approach, based on the Disaster Operations handbook, may be used only if approved by the State.  2. Minimum-Level Emergency Planning Standard a. RADEF - To meet the minimum level RADEF planning standard, each jurisdiction shall have developed the RADEF portion of the following: (1) Basic plan (2) EOC operations plan or annex; including analysis and display of RADEF information in the EOC, and reporting to higher EOC (3) Increased-Readiness plan or annex, including accelerated expansion of RADEF capabilities during an international crisis (e.g., accelerated training of additional RADEF personnel needed and crisis distribution of RADEF sets stored in bulk repositories). (4) Shelter operations plan or annex for protecting population either in-place or after crisis relocation b. Jurisdictions of Approximately 5,000 Population or More (other than RADEF) - To meet the minimum-level standard for other than RADEF, jurisdictions of approximately 5,000 population or more shall have developed an emergency plan including at least the following: Basic Plan plus annexes covering Direction and Control, Warning, Communications, Emergency Public Information, and Radiological Defense. In addition, the local emergency plan shall cover Increased-Readiness operations, and there shall be a CSP shelter allocation for the jurisdiction, with public information materials based on the allocation ready for dissemination during a crisis period. If appropriate, and if direct assistance has been provided by the State, the jurisdiction shall also have operational plans for the contingency of crisis relocation. c. Jurisdictions of Approximately 5,000 Population or Less (other than RADEF) - Smaller jurisdictions shall have developed an emergency plan using one of the approaches described in paragraph lb above, but the plan need not include alerting lists or other standing operating procedures. STANDARD FOUR TANGIBLE COMPONENTS OF EMERGENCY READINESS: FACILITIES AND EQUIPMENT DISCUSSION Readiness to save lives and protect property during a peacetime or attack caused emergency or disaster requires a basis of tangible assets. Many of these assets already exist in local jurisdictions, while others have to be specially developed, as outlined in this Standard. STANDARDS 1. Emergency Operating Center Each jurisdiction shall have an EOC facility from which key officials can exercise direction and control in extraordinary emergencies, whether peacetime or attack-caused. The EOC facility shall have adequate working space for emergency operations; communications to local operating forces, as well as to higher-level and adjacent local EOC's; and shall have all maps and displays needed by the key executives to understand developing emergency situations as a basis for decision-making. Where a county and one or more municipalities conduct combined operations, a single EOC facility may suffice, but in larger cities, support EOC's may be needed. a. Fully-Qualified EOC - The EOC facility is ready at all times for emergency operations and meets Federal criteria including the following; (1) Protection - The EOC must have PF 100 or better fallout protection. (In jurisdictions identified by the Federal government as facing potential high risk from fallout radiation, a PP of approximately 200 is highly desirable, though not required for the "fully-qualified" rating.) EOC's should have their communications and electrical systems protected against electromagnetic pulse (EMP). In addition (though not required for the "fully-qualified" rating), EOC's in areas of high risk from direct effects of nuclear weapons should include protection against blast over- pressures of 15 pounds per square inch. It is also highly desirable that such EOC's have back-up, quick~rect antennas to replace those damaged from direct weapons effects, or high winds of hurricanes and tornadoes. (2) Emergency Power - A relia