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 |