STANDARD FIVE

TANGIBLE COMPONENTS OF EMERGENCY READINESS: TRAINED PERSONNEL

DISCUSSION

Readiness to save lives and protect property during an extraordinary emergency requires special training for personnel, in addition to the facilities and equipment covered in Standard Four. Training standards are established for three groups: (1) personnel of existing departments of government; (2) personnel to be trained in special civil preparedness skills, to supplement or extend the capabilities of government; and (3) the public at large, or special subgroups of the public, such as high school students. (Training for the staff of the local Emergency Operating Center is covered in Standard Six, while training for the local Civil Preparedness Director and staff is covered in Standard Two.)

Training in civil preparedness skills develops capabilities that can be of substantial value to the jurisdiction. For example, training regular police personnel and firefighters in radiological monitoring increases their capabilities for operations in case of a peacetime accident involving radioactive materials. Also, the police department or sheriff's office may train a group of auxiliary policemen to support the regular force during major emergencies. These auxiliaries can be used to assist the regulars in controlling traffic at athletic contests, fairs, or other events involving large numbers of people.

Trained rescue personnel or auxiliary firemen can help local government departments in meeting unusual or even day-to-day needs. Radiological monitors may be given additional duties as tornado-spotters, or to report on rising rivers or environmental hazards.

 STANDARDS

1. Training Required for Local Government Personnel

Police, fire, and other local government personnel may need special training on operations in extraordinary emergencies, in addition to the training and experience they already have in law enforcement, firefighting, etc. This includes training on nuclear attack and natural disaster effects and on the jurisdiction's emergency plans for both. The purpose is to assure that the operating personnel are fully apprised of all of the possible hazard effects, understand how these effects would impact on local operations, and know what their tasks are during the resulting emergency operations. Also, included is training to qualify members of police, fire, and other operating forces to conduct the radiological monitoring needed for each service's operations. Certain additional training is desirable, as in explosive ordnance reconnaissance, rescue techniques, and medical care training extending beyond first-aid (e.g., EMS basic training courses such as the 80- to 120-hour course, Emergency Medical Technician-Basic; and/or the Advanced First-Aid and Safety Course of the American National Red Cross). Further training in advanced life support is provided in the 500- to 800-hour course for Emergency Medical Technician Paramedic).

a. Training for Regular Police Personnel

(1) Fully-Qualified Police Training Standard - For the jurisdiction to be fully qualified, police (or sheriff's) personnel must have received the following training, plus refresher training as necessary:

(a) All police personnel have been trained on nuclear attack effects, on hazards that could be caused by peacetime disasters, and on the locality's emergency plan, with emphasis on the police portions thereof. Training for regular police personnel on nuclear attack effects and operations may be based on the Part A course developed in cooperation with the International Association of Chiefs of Police, "Law and Order Training for Civil Defense Emergency."

(b) Enough police personnel have been trained as radiological monitors to assure that the police force can conduct its own monitoring in case of nuclear attack or a peacetime radiological incident. The number of personnel to be trained will be established by the chief of police or sheriff, in consultation with the civil preparedness Director/Coordinator, but the number of monitors should be sufficient to assure that one trained man is available for each police vehicle. The minimum training required is completion of either the HS-3 home study course, "Radiological Monitoring," plus the related 8 hours of practical application, or the 16-hour Radiological Monitoring Course. In addition to the foregoing, it is recommended that police personnel receive training in Explosive Ordnance Reconnaissance, rescue techniques, and medical care courses noted above.

(2) Minimum-Level Standard for Regular Police Training - For the jurisdiction to meet the minimum level standard, police personnel must have received the following training:

(a) Personnel down through the level of sergeant or the equivalent have been trained on nuclear attack effects, peacetime-disaster hazards, and the locality's emergency plan; and

(b) Enough radiological monitors have been trained to assure that one trained man is available for each four police vehicles.

b. Training for Regular Firefighters

(1) Fully-Qualified Firefighter Training Standard - For the jurisdiction to be fully qualified, paid or volunteer firefighters must have received the following training, plus refresher training as necessary:

(a) All firefighters have been trained on nuclear attack effects, on possible peace-time disaster hazards, and on the locality's emergency plan, with emphasis on the fire service portions thereof. Training for regular firefighters on nuclear attack effects and operations may be based on the Part A course developed in cooperation with the International Association of Fire Chiefs, "Support Assistants for Fire Emergency."

(b) Enough firefighters have been trained as radiological monitors, from each company or equivalent unit, to assure one man on duty at all times, in case of nuclear attack or a peacetime radiological incident. The minimum training required is completion of either the HS-3 home study course plus 8 hours of practical application or the 16-hour Radiological Monitoring Course. In addition to the foregoing, it is recommended that firefighters receive training in Explosive Ordnance Reconnaissance, rescue techniques, and medical care as outlined above under police training.

(2) Minimum-Level Standard for Regular Fire- fighters' Training - For the jurisdiction to meet the minimum-level standard, paid or volunteer firefighters must have received the following training:

(a) The officer in command of each company or equivalent unit has been trained on nuclear attack effects, peacetime disaster hazards, and the locality's emergency plan; and

(b) Enough firefighters have been trained as radiological monitors to assure one man on duty at all times with each company or equivalent unit.

c. Warning Personnel - Personnel manning the local warning system require orientation and training (primarily on-the-job) to assure rapid and effective dissemination of attack, severe-weather, and other warning to the population. ("Other warning" includes procedures for warning the population in case of an accidental missile launch.)

(1) Fully-Qualified Warning Standard - The jurisdiction has (a) one employee assigned responsibility for all warning matters who spends as much time as required; (b) warning point personnel providing 7-day, 24-hour cover- age who either work full-time on warning or are employed as dispatchers, communicators, etc. with warning duties part of their regular responsibilities; (c) provided on-the-job training for warning point personnel, including operation of equipment and procedures for receipt of attack and severe-weather warning and its dissemination to the public (via warning system and local broadcast stations); (d) periodic tests for warning point personnel, including procedures for both attack and severe-weather warning; and (e) trained all personnel needed for a full severe-weather spotting network.

(2) Minimum-Level Warning Standard - The jurisdiction meets criteria in item (c) of the "fully-qualified" standard, and a severe-weather spotting network (if needed) exists but is not complete.

d. Training for School Personnel - Schools in the jurisdiction should have disaster plans which are integrated with the local government's emergency operations plan (as noted in Standard Three). Also, school personnel require training to meet assigned emergency responsibilities.

(1) Fully-Qualified School Standard - For schools in the jurisdiction planned for use as attack or peacetime-disaster shelters (a) the full requirement of Radiological Monitors and Shelter Managers has been trained and assigned from faculty and/or administrative staff; (b) local school officials (superintendent, principals) have been oriented on local government emergency plans; in addition, it is highly desirable that such officials participate in local government emergency exercises.

(2) Minimum-Level School Standard - Schools planned for use as shelters have at least one faculty member trained in shelter management and one in radiological monitoring, and meet item (b) of the 4'fully-qualified" standard.

2. Training For Personnel Required To Supplement or Extend Governmental Capabilities

Most jurisdictions require additional personnel to supplement or extend the emergency capabilities of local government. Some local fire or police forces may require trained auxiliary personnel for service in peacetime or attack-caused emergencies, and most localities will also require trained personnel to serve as Shelter Managers, Radiological Monitors, and Radiological Defense Officers. Dual-use missions should be sought (e.g., radiological monitors trained and assigned as tornado spotters or flood watchers.)

a. Radiological Defense Personnel-Each jurisdiction requires trained radiological monitors (RM's) to operate radiological instruments. '(Ms are required for the jurisdiction's shelters, for personnel of emergency services, vital facilities and essential industry in order that they may protect themselves from radiation, and for the network of weapons effects reporting stations. There is a requirement for at least one monitor for each public shelter facility identified in the community's shelter plans. Plans should include procedures for training shelter monitors in a crisis period. Plans should include using all available local resources including TV for this training. There is a requirement for two RM's for each set of instruments issued for self-protection monitoring and four RM's for each weapons effects reporting station. At least half of this requirement should be operationally ready at all times with plans and procedures established for training of the remaining half in a crisis period. Minimum training for RMs for self protection and for the reporting stations only is successful completion of the HS-3 Home Study Course "Introduction to Radiological Monitoring" plus the follow-on RM-Practical (Practical Application and Use of Civil Preparedness Radiological Instruments).

Each jurisdiction responsible for directing and conducting emergency operations under enemy attack conditions requires trained Radiological Defense Officers to provide technical advice and recommendations. A minimum of two Radiological Defense Officers (RDO's) should be trained to provide for two-shift coverage at each EOC. For jurisdictions of over 25,000 population, at least one assistant RDO per shift should be trained. In jurisdictions of over 250,000 population, at least two assistant RDO's per shift should be trained. In larger jurisdictions where emergency services (fire, police, rescue, medical, etc.) have their own operations center which is in charge of coordinating and directing emergency operations, at least two emergency service personnel should be trained as Radiological Defense Officers, to provide two-shift coverage. Minimum training for RDO's and assistant RDO's is successful completion of the RDO Basic Course or equivalent. The senior RDO for communities of 25,000 or over should also have completed the RDO Advanced Course. Each jurisdiction should develop a capability to train operationally ready radiological monitors. The jurisdiction should also develop a capability for crisis training of additional radiological monitors, shelter monitors and additional RADEF staff for EOC operations in accordance with their plan. The number of instructors required will depend upon the number of monitors required to be trained during a crisis, and the number of EOC's where crisis augmentation of the RADEF staff is planned. Radiological Defense Instructors should complete the Radiological Defense Instructor Workshop. Personnel to be trained for radiological defense operations should be drawn wherever possible from local, State or Federal government employees who are available locally and who do not have conflicting emergency assignments.

(1) Fully-Qualified Standard /br Training Radiological Defense Personnel - The jurisdiction has trained and assigned the personnel needed in accordance with the above requirements.

(2) Minimum-Level Standard for Training Radiological Personnel - The jurisdiction must have:

(a) Plans and procedures for crisis training RM's for Shelter.

(b) Trained and assigned at least one RDO.

(c) Provided update/refresher training for assigned RDO's at least once every two years.

(d) Trained and assigned at least 50% of the number of radiological monitors required for weapons effects reporting stations and for emergency services, vital facilities, and essential industries.

(e) Plans, procedures and instructors for training additional RM's for emergency operations of (d) above during a crisis period.

(i) Provided update/refresher training for at least 50% of the trained and assigned monitors in the jurisdiction within the last two years.

(g) Contacted all RADEF personnel (RDO's and RM's) at least semiannually to determine their continued availability and willingness to serve in their assigned capacity.

b. Shelter Managers - Each jurisdiction that has public shelters requires trained Shelter Managers (SM's). The number of trained shelter managers required averages one for each 150 persons planned to be sheltered in public shelters, with no less than two SM's for each facility planned to be used. Shelter Managers shall be assigned to all facilities planned for local use, even if the PF is less than 40. As with RM's, Shelter Managers shall be contacted at least twice a year, to determine if they are still available and willing to serve. Replacements shall be recruited and trained as necessary, and SM's still available to serve should be given refresher orientation on their duties and assignments at least every two years. Shelter Managers should be trained in conjunction with the American Red Cross, whenever possible, so they can serve as managers of congregate care facilities established for natural disaster evacuees or victims, or crisis relocatees, as well as in case of attack upon the U.S. and activation of fallout shelters.

(1) Fully-Qualified SM Standard - The jurisdiction has trained and assigned its total requirement for SM's for existing public shelters planned for use.

(2) Minimum-Level Standard for SM's - The jurisdiction has trained and assigned at least half its requirement OC SM's, provided there is at least one SM assigned to each existing shelter planned for use. Provision of shelter management guidance in all existing public shelters planned for use may be considered as meeting the requirements for the minimum-level Standard in lieu of having trained SM's. The jurisdiction shall in addition have detailed (who/what/where/how) Increased-Readiness plans for accelerated training of additional SM's needed, during a crisis.

c. Auxiliary Police - Many chiefs of police and sheriffs have determined, in consultation with the local civil preparedness Director/Coordinator, that a force of trained auxiliaries is required to support the regular force during emergencies. The number of auxiliaries required for attack-emergency operations will vary widely, depending on such factors as the number of public shelters, and the need for police personnel for movement4o-shelter and in-shelter law enforcement, for a mobile force, and for security of vital facilities. Thus, requirements for police auxiliaries are determined by the process of emergency planning. Should crisis relocation plans be activated, low-risk counties could experience a large influx of evacuees from high-risk areas, and thus need a substantial number of auxiliaries, to augment the regular police in such duties as traffic control, supervision of vehicle parking, and patrol activities. Studies in test cities suggest that the need for auxiliaries may vary within a range of from 2 to 5 auxiliary policemen for each regular. Thus, the number of auxiliaries needed should be established by detailed analysis by local police planners. However, pending such analysis, a figure of 4 auxiliaries for each regular may be used, if the chief of police or sheriff agrees that this rule of thumb is satisfactory.

(1) Fully-Qualified Auxiliary Police Standard

For the jurisdiction to be fully qualified, the local law enforcement agency has trained its entire requirement of auxiliary personnel, in at least the Part A course, "Law Enforcement in Civil Defense Emergency." It is also highly recommended that half or more of the auxiliaries complete the Part B course; that they have on-the-job training with the regular force; and that they take additional training in Explosive Ordnance Reconnaissance, radiological monitoring, rescue, and medical care extending beyond first aid.

(2) Minimum-Level Standard for Auxiliary

Police-To meet the minimum level standard for auxiliary police training, the local law enforcement agency has trained at least half of its requirement for auxiliaries in the Part A course.

d. Support Assistants for Fire Emergency (Auxiliary Firefighters) - Many fire chiefs have deter- mined, in consultation with the local civil preparedness Director/Coordinator, that a force of trained auxiliaries is required to supplement the regular fire service. Such "Support Assistants for Fire Emergency" (SAFE) are trained to make them useful in limited roles in support of the regular fire service, during emergencies. SAFE personnel would be needed primarily in or near jurisdictions facing potential high risk from the blast and heat effects of nuclear weapons, where organized firefighting could have a significant impact on the number of survivors. However, the number of SAFE personnel required should be determined by local fire service officials, based on emergency planning for the jurisdiction. An important factor to be considered is the need to provide relief personnel for the regular fire service, primarily if firefighters must operate in areas of fallout contamination, which could limit the time each man could serve. A figure of four SAFE personnel for each regular firefighter may be used, if the fire chief agrees that this rule of thumb is satisfactory.

(I) Fully-Qualified SAFE Standard - For the jurisdiction to be fully qualified, the local fire service has trained its entire requirement of SAFE personnel, in at least the Part A SAFE course. It is also highly recommended that half or more of the SAFE personnel complete the Part B course; and that they take additional training in Explosive Ordnance Reconnaissance, radiological monitoring, rescue, and medical care extending beyond first aid.

(2) Minimum-Level Standard for SAFE Training - To meet the minimum-level standard for SAFE training, the local fire service has trained at least half of its requirement for SAFE personnel in the Part A course.

e. Rescue Personnel - Localities may require trained rescue personnel to supplement the capabilities of the fire service or other local forces, during emergencies requiring rescue of trapped or injured persons. Rescue forces should be under the operational control of the fire service or other department within which they normally operate. In the absence of a detailed analysis of local needs, a rule of thumb of two trained rescue personnel per 1000 population may be used.

(1) Fully-Qualified Rescue Standard - The local fire service or other responsible department has trained its entire requirement of rescue personnel in at least the Basic Rescue and Light Rescue courses or the equivalent. (See Instructor Guides 14.1 and 14.2.) It is also highly recommended that rescue personnel receive training in radiological monitoring, and in medical care extending beyond first aid (in particular, the Emergency Medical Technician Basic course).

(2) Minimum-Level Standard for Rescue Personnel - The responsible local department has trained at least half of its requirement for rescue personnel.

f. Health Personnel-Special training of health personnel for disaster medical services can contribute substantially to the effectiveness of health and medical operations in disasters. Local civil preparedness Directors/Coordinators should work closely with local health officers, medical societies, and others concerned to assure that necessary training is conducted.

Training packages, developed by the National Highway Traffic Safety Administration/DOT are available through the States to train Emergency Medical Technicians. These packages include instructor manuals, student or resource texts, and visual aids. The first is Emergency Medical Technician-Ambulance, an .80- to 120-hour course for ambulance attendants consisting of both classroom instruction and training and experience in a hospital emergency department. The second (for which the first course or equivalent is prerequisite) is a 500- to 800-hour course in advanced life support techniques for Emergency Medical Technicians (Paramedic). Procedures vary from State to State for deploying these courses. In some States, the Governor's Representative for Highway Safety is the lead agency while, in others, it is the State Health Department. Where doubt exists, first contact should be with the Health Department. Current EMT training courses focus almost exclusively on individual medical emergencies (i.e., cardio-vascular, traffic accidents, gunshot wounds, etc.) rather than mass casualty problems associated with disasters. Health personnel should participate in annual rehearsals of hospital disaster plans, which are required by the Joint Commission on Accreditation of Hospitals, and also in radiological monitoring courses.

(1) Fully-Qualified Health Training Standard - All personnel required have received training in appropriate courses; such as those noted above, and radiological monitoring. In addition, appropriate hospital and medical personnel have participated in the annual rehearsals of hospital disaster plans and other exercises involving mass casualty problems.

(2) Minimum-Level Health Training Standard - Half of the personnel required have been trained in appropriate courses. Hospital and medical personnel have rehearsed disaster plans as required in (1) above.

g. Emergency Communications Personnel - In many jurisdictions, all personnel needed for emergency communications are government employees, but in others additional personnel are needed to operate equipment needed for communications in an emergency.

(1) Fully-Qualified Communications Standard - The jurisdiction (a) has assigned responsibility for communications operations to a Communications Officer; (b) has trained staff who are assigned to operate communications equipment on a daily basis; and (c) has trained additional personnel as needed to augment the existing staff; if amateur radio operators are used, they have been given on-the-job training based on a December, 1971 "Manual for Radio Amateur Civil Emergency Service (RACES)."

(2) Minimum-Level Communications Standard - The jurisdiction meets criterion (a) noted above for the "fully-qualified" standard but in lieu of (b) and (c) has trained personnel available to operate communications in an emergency who have demonstrated proficiency in an exercise (or actual emergency) at least every other year; training for any radio amateurs is based on the 1971 RACES manual.

h. Emergency Public Information Personnel-The emergency public information (EPI) function is one of the most important elements of local preparedness, as disaster experience shows that citizens want, need, and will respond to action advice and instructions from officials of their governments. An effective emergency information capability requires close and continuing involvement by local news media personnel.

(1) Fully-Qualified EPI Standard - Key local government officials and media editors, program directors, and news personnel have, as appropriate, been involved in EPI planning, are thoroughly familiar with pre-prepared materials, know their roles and procedures for EPI dissemination, and have practiced them in exercises or used them during actual emergencies. (The prepared materials include those based on the CSP shelter allocation, for in-place protection; those which may be prepared reflecting crisis relocation planning; and those of general applicability, based on "In Time of Emergency.")

(2) Minimum-Level EPI Standard - Representatives of local news media have been involved in EPI planning, and are familiar with general EPI objectives and plans, and with EOC procedures. Key government officials and media representatives meet at least annually to review their roles and actions in an emergency.

i. Public Works Engineering Personnel - Personnel to conduct engineering operations in disasters should include government public works engineering (PWE) staffs, and desirably key supervisors of private construction and engineering organizations with a capability to assist in emergencies.

(1) Fully-Qualified PWE Standard - All required PWE personnel have been trained on nuclear attack effects, peacetime hazards, and the local emergency plan, and in rescue techniques and first aid. As applicable, PWE personnel have been trained as Radiological Monitors to provide in-service monitoring capability.

(2) Minimum-Level PWE Standard - The jurisdiction meets criteria for the "fully-qualified" standard with the exceptions that only supervisory personnel have been trained on disaster effects and the local plan, and that approximately half of PWE personnel have received rescue, first aid, and radiological monitoring training.

j Emergency Welfare Personnel - Personnel to conduct emergency welfare operations in large scale emergencies normally include staff from the local welfare department, augmented extensively by voluntary groups such as the Red Cross, and in many cases by volunteers from other sources. As plans are developed for the option of crisis relocation, training and organizing personnel for emergency welfare functions will take on increased importance, particularly in low-risk host jurisdictions.

(1) Fully-Qualified Emergency Welfare Standard - All personnel required for welfare operations in a major emergency have been trained or have had on-the-job experience in a major peacetime emergency.

(2) Minimum-Level Emergency Welfare Standard - The jurisdiction has trained only a cadre of emergency welfare personnel, rather than the full complement required.

3. Training for the Public

Full emergency readiness requires that the public be trained in survival techniques and self-protection. A public information program can help develop citizens' understanding of actions they may be advised to take during emergencies.

a. Emergency Medical Training - Training includes courses such as Red Cross First Aid training courses and the like. (Note: Criteria provided below may be changed, following reexamination of the subject of individual health and medical training by Federal, State, and local civil prepared- ness personnel.)

(I) Fully-Qualified Standard - The jurisdiction has trained one person per family in an appropriate emergency medical course.

(2) Minimum-Level Standard - One person has been trained per four families.

b. Public Information - Civil preparedness activities should be publicized, especially those which will require some degree of public knowledge of actions to be taken during an emergency.

(1) Fully-Qualified Public Information Standard - The jurisdiction has established and maintains a fully cooperative relationship with the news media; media participate actively in public information on civil preparedness.

(2) Minimum-Level Public Information Standard - The jurisdiction has a public information program, but contacts with media representatives are not regular and sustained.