Chemical Stockpile Emergency Preparedness Program

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3 Federal Emergency Management Agency Department of the Army Chemical Stockpile Emergency Preparedness Program This strategic plan reflects a coordinated, joint effort between the Department of the Army and the Department of Homeland Security (DHS), Federal Emergency Management Agency (FEMA) to develop and manage a Chemical Stockpile Emergency Preparedness Program (CSEPP). In 1985, Congress directed the Department of Defense (DOD) to dispose of its lethal unitary (pre-mixed) chemical agents and munitions while providing maximum protection for the environment, the general public and the personnel involved (Public Law , Title 14, Part B, Section 1412.) Acting upon Congress direction, the Army and FEMA signed a memorandum of understanding (MOU) in 1988 that has facilitated CSEPP s development of emergency response capabilities for the eight chemical stockpile sites within the continental United States and the adjacent civilian communities. This MOU was reaffirmed in 1993, revised in 1997, and updated in 2004, continuing a close integration of on-post and off-post response capabilities. This plan supports and is aligned with the DHS and DOD strategic plans developed in accordance with the Government Performance and Results Act (GPRA), as amended. It provides a mission statement for the program and a description of program goals, how those goals (including the CSEPP National Benchmarks) are to be achieved, and how achievement of the goals is measured. It also addresses internal and external challenges that may make achievement of program goals more difficult. The ultimate objective is to ensure that chemical storage installations and off-post communities fully meet the capabilities identified in the 12 National Benchmarks and sustain this capability until the chemical agent stockpile has been eliminated. As the chemical stockpile diminishes, reducing the risk to the general public, workers, and environment, we will continuously evaluate CSEPP capabilities to ensure that this program is efficiently and effectively executed. As the program comes to a conclusion, we will ensure that the capabilities developed and lessons learned are preserved or transferred to the extent possible for the benefit of the wider emergency management and homeland security community. Richard W. Brletich Chief, Chemical Stockpile Emergency Preparedness Program US Army Chemical Materials Activity Terry Hobbs Chief Chemical Stockpile Emergency Preparedness Branch Technological Hazards Division Federal Emergency Management Agency Department of Homeland Security CSEPP STRATEGIC PLAN i

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5 Table of Contents Purpose of This Document... 1 CSEPP History and Overview... 1 Program Origin... 1 Army and FEMA Organizational Roles... 1 Demilitarization Status... 2 Budgetary Process... 2 Regulatory and Guidance Context... 2 Use of Integrated Process Teams... 3 Participating Organizations... 3 Program Closeout and Legacy... 4 Mission and Vision... 5 Mission... 5 Vision... 5 Performance Goals and Management... 5 Benchmarks... 5 Program Budgeting and Controls... 6 Annual Reports to Congress... 7 Additional Goals... 7 Links to Broader Strategic Planning... 8 External Factors and Challenges... 8 Programmatic... 9 Political... 9 Regulatory... 9 Technological Implementation Summary Appendix A: Description of CSEPP National Benchmarks Benchmark 1: Administrative Support (ADM) Benchmark 2: Alert and Notification (A&N) CSEPP STRATEGIC PLAN iii

6 Benchmark 3: Automation (AUT) Benchmark 4: Communication Systems (COM) Benchmark 5: Coordinated Plans (COP) Benchmark 6: Emergency Operations Centers (EOC) Benchmark 7: CSEPP Exercises (EX) Benchmark 8: Medical Preparedness (MED) Benchmark 9: Qualified Personnel (PER) Benchmark 10: Protective Action Strategies (PRO) Benchmark 11: Public Outreach/Education (POE) Benchmark 12: Training Programs (TNG) iv CSEPP STRATEGIC PLAN

7 Purpose of This Document The Government Performance and Results Act (GPRA), as amended, calls for Federal agencies to improve their effectiveness and public accountability by promoting a new focus on results, service quality, and customer satisfaction (Public Law , Section 2(b)(3).). Each agency is tasked with developing a strategic plan to define its mission, goals to support that mission, and specific performance measures and methods to track progress toward those goals. This strategic plan for the Chemical Stockpile Emergency Preparedness Program (CSEPP) supports the Department of Homeland Security (DHS) and Department of Defense (DOD) strategic plans. It includes a comprehensive mission and vision statement; a general description of goals and objectives and how these will be achieved; a description of performance measures (indicators) used; and identification of key factors that could affect achievement of the general goals and objectives. By posting the final draft document on the CSEPP Portal, the Army and the Federal Emergency Management Agency (FEMA) solicited the views and suggestions of stakeholders and customers who are potentially affected by this plan. This strategic plan will be revised and updated periodically. CSEPP History and Overview Program Origin In 1985, Congress directed DOD to dispose of its lethal unitary (pre-mixed) chemical agents and munitions while providing maximum protection for the environment, the general public, and the personnel involved. In 1987, the U.S. Army released a draft Emergency Response Concept Plan (ERCP), which presented a basis for the development of local emergency response programs and examined various methods of emergency planning. The Army also prepared a Chemical Stockpile Disposal Implementation Plan and requested funds to implement enhanced emergency preparedness on-post and off-post for all eight chemical stockpile sites in the continental United States. The effort to enhance emergency preparedness became the CSEP Program when FEMA joined in that effort through a memorandum of understanding (MOU) signed in August This MOU was reaffirmed in 1993 and revised in 1997 and Army and FEMA Organizational Roles CSEPP is a project funded under the chemical demilitarization program, a major defense acquisition program executed by the Army. Prior to demilitarization, CSEPP augments the Army s Chemical Materials Activity (CMA) whose mission is to safely store the stockpile by ensuring maximum protection to its workers, the public, and the environment. The Assistant Secretary of the Army for Acquisition, Logistics and Technology (ASA[ALT]) Joint Program Executive Office Chemical and Biological Defense (JPEO-CBD) is responsible for overseeing CSEPP execution. The CMA executes day-to-day management of CSEPP, including upgrading on-post response capabilities, developing on-post preparedness plans, conducting on-post training, maintaining automation, and integrating on- and off- post capabilities. CMA stores its remaining chemical stockpile at two locations: Blue Grass Army Depot (BGAD) in Kentucky and Pueblo Chemical Depot (PCD) in Colorado. CSEPP STRATEGIC PLAN 1

8 As part of FEMA, CSEPP resides within the Technological Hazards Division (THD) of the National Preparedness Directorate. Under the MOU, FEMA takes the lead in assisting, promoting, and evaluating preparedness in the off-post CSEPP communities. FEMA s role is executed through a national office at FEMA Headquarters and FEMA regional program offices where the chemical installations are located. Pueblo is in FEMA Region VIII (based in Denver) and Blue Grass is in Region IV (based in Atlanta). Demilitarization Status As of 2013, approximately 90 percent of the Nation s chemical stockpile has been destroyed. At the remaining sites, the Assembled Chemical Weapons Alternatives (ACWA) program is responsible for destruction of the stockpile, while CMA is responsible for continued safe storage of the stockpile until it is destroyed. Budgetary Process FEMA assists state and local governments in planning and validating their CSEPP requirements and distributes funds to the states under cooperative agreements (CAs). The state and local governments develop plans and capabilities to protect the public and provide financial and performance reports, addressing the capability improvements realized through expenditure of CSEPP funds. Each year, state and local governments work with FEMA to develop two financial documents: their annual budget request as part of the CSEPP CA and their CSEPP Life Cycle Cost Estimate (LCCE). As a first step, state and local governments negotiate the budget for the upcoming fiscal year with FEMA. The budget request is submitted to FEMA as part of a larger application for review to support the annual grant award. Once submitted, the state and local governments use the proposed budget to work with FEMA to determine the longer-term requirements, which the Agency then validates and submits to the Army as part of the LCCE. These requirements, along with FEMA CSEPP Office support requirements and requirements for the Army CSEPP installations, are consolidated into a single CSEPP LCCE by the CMA CSEPP Office. The CSEPP LCCE is incorporated into the CMA program office estimate (POE), which is used as the basis for the Chemical Demilitarization Program input to the Army s program objective memorandum (POM). The Chemical Demilitarization Program POM input determines program requirements for the next five program years and is submitted to the Undersecretary of Defense for Acquisition, Technology, and Logistics for review. The first year of the POM is called the budget estimate submission (BES). After the Office of the Secretary of Defense (OSD) Defense Resources Board reviews and approves the POM/BES input, the BES is incorporated into the President s budget, which is transmitted to Congress in February, and the POM is incorporated into the DOD Future Years Defense Program (FYDP). Regulatory and Guidance Context The Army and FEMA manage these preparedness activities within their existing regulatory frameworks. Homeland Security Presidential Directive (HSPD) 5, Management of Domestic Incidents (February 28, 2003), directs implementation of the National Incident Management System (NIMS). FEMA executes NIMS through a variety of guides and offices, including the grant regulations at 44 CFR Part 13 that structure the management of annual CSEPP CAs. DOD references HSPD-5 in describing overall DOD installation emergency response requirements in 2 CSEPP STRATEGIC PLAN

9 DOD Instruction , DOD Installation Emergency Management (IEM) Program (Change 1, November 19, 2010); the Army s service-specific emergency preparedness objectives are contained in Army Regulation (AR) , Army Emergency Management Program (March 13, 2009). For the Army chemical stockpile in particular, AR 50-6 and Army Directive provide additional Army direction for preparedness, response, reporting, and recovery. The installation commander typically also executes duties under the National Contingency Plan (40 CFR Part 300) as the On-Scene Coordinator (OSC). The OSC coordinates through the U.S. Army Operations Center and the Federal Regional Response Team for assistance from other agencies. Use of Integrated Process Teams CSEPP s success relies on interagency and inter-jurisdictional cooperation. To help carry out this mission, CSEPP uses integrated process teams (IPTs), mandated under Public Law (National Defense Authorization Act for FY 1997) and implemented under an Army/FEMA Joint Memorandum for Record - Use of Integrated Process Teams (IPTs) (May 1998). IPTs are used extensively to negotiate priorities and achieve consensus solutions. Community IPTs are used at each site, together with functional IPTs and workgroups at the national level. In 2012, with the transition to a two-site program, the Army and FEMA established a program management team (PMT) consisting of management representatives from the Army and FEMA HQ, FEMA Regions IV and VIII, the Blue Grass and Pueblo chemical depots, the state of Colorado, the commonwealth of Kentucky, and Colorado and Kentucky counties to provide oversight and an inclusive and coordinated decision-making process. Participating Organizations Currently, 11 counties, two states, and two Army installations participate in CSEPP. Three of the counties include areas within the immediate response zone (IRZ), which is the emergency planning zone immediately surrounding the Army installation and extending to about six miles from the chemical storage area. Beginning in FY 2013, the primary CSEPP stakeholders include the following: Headquarters U.S. Department of Defense Joint Program Executive Office for Chemical and Biological Defense U.S. Army Chemical Materials Activity U.S. Department of Homeland Security, Federal Emergency Management Agency Pueblo, Colorado, Stockpile FEMA Region VIII State of Colorado Pueblo Chemical Depot Colorado Division of Homeland Security and Emergency Management Pueblo County (IRZ) Pueblo City-County Health Department CSEPP STRATEGIC PLAN 3

10 Richmond, Kentucky, Stockpile FEMA Region IV Commonwealth of Kentucky Blue Grass Army Depot Blue Grass Chemical Activity Kentucky Division of Emergency Management Clark County Estill County (IRZ) Fayette County Garrard County Jackson County Jessamine County Laurel County Madison County (IRZ) Powell County Rockcastle County CSEPP is managed as a Whole Community partnership that brings together FEMA, the Army, many other Federal departments and agencies, state and local governments, volunteer organizations, and private industry. Program Closeout and Legacy Congress has specifically directed that no new funding will be provided for CSEPP communities following the completion of stockpile elimination (50 U.S.C. Sec. 1521(e)(2)(B)). As destruction activities progress, a continuing focus of the program ensures a smooth and efficient closeout that recognizes the enduring value of emergency management for public health and safety. Until the end of the program, as defined by law, the Army and FEMA will support the state and local communities that receive program funding in preserving the capabilities developed during the program and transitioning to a long-term profile. At the six communities where CSEPP has closed out and funding has ceased, the program has left the community better prepared to respond to all hazards, not just chemical emergencies. Local jurisdictions now have advanced emergency response capabilities that include experienced emergency management personnel, interoperable communications systems, protective equipment for first responders, renovated and equipped emergency operations centers, and preparedness outreach and public education programs. At the national level, a number of capabilities and tools have been developed that are being adapted to enhance other programs, including planning software, hazard analysis software, training programs, integrated public alerting and warning systems, and lessons learned. The program will continue to advance the state of the art in emergency preparedness and capture lessons learned for the benefit of the wider emergency management community. 4 CSEPP STRATEGIC PLAN

11 Mission and Vision Mission CSEPP s mission is to enhance existing local, installation, state, and Federal capabilities to protect the health and safety of the public, work force, and environment from the effects of a chemical accident or incident involving the U.S. Army chemical stockpile. This mission aligns with Army and FEMA missions by protecting the CSEPP communities from potential chemical accidents and incidents while the Army executes its objective of eliminating the aging chemical munitions and chemical warfare materials. This mission is in line with international as well as national policies. Vision CSEPP s vision is a fully prepared team of local, installation, state, and Federal professionals developing and executing an effective emergency preparedness and response program. This vision is realized through full development and seamless integration of Federal, state, and local emergency response assets. Performance Goals and Management Fulfillment of the CSEPP mission is executed and progress is measured through specific goals, management processes, and performance measures. These include the CSEPP National Benchmarks and other program goals, budgeting processes, and annual reports to Congress. Benchmarks CSEPP has defined a core set of community preparedness capabilities (referred to as National Benchmarks) that support the overall CSEPP mission. These benchmarks are a key tool in CSEPP planning, programming, budgeting, and performance assessment. They articulate how the program will achieve its mission and be assessed. The benchmarks are achieved in different ways at different sites. The Pueblo and Blue Grass sites differ significantly in terms of the nature of the stockpile, potentially impacted population, number of local jurisdictions, and other factors. Thus, different resources are required at each site to achieve the goal of maximum protection that underlies the benchmarks. Balancing support for personnel, facilities, equipment, and other capabilities between the two sites can be challenging. CSEPP strives to ensure that each community receives the resources it needs to be prepared given the local hazards, existing capabilities, and other circumstances. The term used in program administration to describe this flexible approach is functional equivalency. Through the benchmarks, the Army and FEMA intend to sustain a high standard of readiness at the installations and off-post communities and to retain the public s confidence that the program is achieving its mission in a fiscally responsible way. CSEPP STRATEGIC PLAN 5

12 The National Benchmarks include the following: 1. Administrative support for each CSEPP installation, state, and county necessary to support their CSEPP preparedness activities. 2. Functioning alert and notification system extending across the installation and appropriate off-post jurisdictions to communicate protective actions and other critical response information to the public. 3. Functioning automation system for rapid exchange of chemical hazard modeling and protective action analysis between the CSEPP installation, state and counties. 4. Functioning communications links between the CSEPP installation, state and county Emergency Operations Centers (EOC)s, and the Joint Information Center (JIC) to support coordinated implementation of response plans. 5. Coordinated plans for response to hazards from the stockpile for each CSEPP installation, state, and county. 6. Functioning EOCs at each CSEPP installation, state, and county to support coordinated implementation of response plans. 7. An exercise program that effectively tests integrated response capabilities and preparedness. 8. A medical program to support on- and off-post medical preparedness among first responder and receiver organizations for a chemical weapons accident or incident. 9. Specialized personnel, such as CSEPP manager, public information officer, planner, and information technology specialist, to support CSEPP activities at CSEPP installations, states, and counties. 10. Protective action strategy for each jurisdiction that is based on the threat from the stockpile, consistent with response plans, and conforms to established CSEPP guidance. 11. A program for coordinated emergency public information and education, including a public outreach/education program to enhance CSEPP awareness and familiarity with the protective action strategy. 12. Training programs, consistent with CSEPP guidance, state and local training plans (for off-post jurisdiction personnel) and Army certification requirements (for installation personnel) that maintain proficiency of emergency services providers/responders and CSEPP staff. The benchmarks are detailed in Appendix A, including explanations of the intent, required actions, and performance measures for each benchmark. Program Budgeting and Controls The budgeting process is an integral part of CSEPP performance assessment and review. Budgets are developed to address requirements that have been identified in order to meet the benchmarks. CSEPP LCCEs and CSEPP CAs are two essential elements of this process. FEMA issues CSEPP CA Guidance to assist CSEPP states in developing their funding proposals. 6 CSEPP STRATEGIC PLAN

13 LCCEs The LCCE, organized by the program benchmarks, is revised annually by the local, depot, state, and Federal CSEPP offices based on the latest guidance from OSD. FEMA is responsible for validating the local and state requirements. The Army is responsible for compiling and submitting the document to OSD. CAs The CSEPP CA guidance establishes the guidelines under which FEMA CSEPP distributes funds to the states to support stockpile emergency preparedness. Under the CAs, each state identifies its needs, develops proposed projects to meet those needs, requests funds from FEMA, and disburses these funds to the various state offices and local governments involved in the proposed projects. The states are responsible for financial accountability, adherence to Federal grant management rules, and providing quarterly financial reports and narrative performance reports addressing the capability improvement realized through the funds. Local jurisdictions (counties) are sub-grantees to the state grantee. Annual Reports to Congress Annual Reports to Congress are compiled in response to requirements set forth in 50 U.S.C (i)(2)(a)-(d). In that statute, Congress requires the following: A site-by-site description of the construction, equipment, operation, and dismantling of facilities used to carry out the destruction of agents and munitions under this section, including any accidents or other unplanned occurrences associated with such construction and operation. A site-by-site description of actions taken to assist State and local governments in carrying out functions relating to emergency preparedness and response. An accounting of all funds expended. An assessment of the safety status and the integrity of the stockpile of lethal chemical agents and munitions. The annual reports to Congress review the program s level of success in achieving the previous year s performance goals; evaluate the performance plan for the current year in light of last year s successes or failures; provide explanations for failures to meet goals; and include summaries of program evaluations completed during the preceding year. This analysis is primarily based on three factors: the Community Profile developed bi-annually by each community IPT, the results of the annual CSEPP exercise in each community, and each community s annual CA, which includes workplans for all CSEPP-funded state and local positions. Additional Goals Adaptation to Changing Environment The program continuously adapts to maintain an appropriate level of preparedness in light of changing circumstances. As chemical agents and materials are destroyed, the overall risk to the nearby communities declines. Changes in risk may drive changes in planning and priorities. Other factors that may affect the program include demographic shifts, changes in environmental and health standards, and changes to emergency management doctrine and emergency plans. CSEPP STRATEGIC PLAN 7

14 Preservation and Transfer of Capabilities CSEPP ends at each site when the stockpile is destroyed and will end overall when the last site is finished. As the program approaches these terminations, one goal is to transfer CSEPP capabilities and lessons learned to homeland security initiatives at the local, state, and Federal levels. The states and counties participating in CSEPP have been recognized as having developed robust emergency response capabilities that are models across the Nation for response to all hazards. The Army and FEMA will continue to facilitate the transfer of CSEPP lessons learned and capabilities to the broader scope of homeland security and development of comprehensive all-hazards preparedness strategies. Links to Broader Strategic Planning FEMA CSEPP operates within a strategic planning structure established by the President, DHS, and FEMA. Presidential Policy Directive (PPD) 8, National Preparedness, is dedicated to strengthening the security and resilience of the United States through systematic preparation for the threats that pose the greatest risk to the security of the nation. It is also aimed at facilitating an integrated all-of-nation approach to preparedness. Under PPD-8, DHS has developed the National Preparedness Goal, which encompasses a set of national preparedness frameworks that provide for coordinating structures to align key roles and responsibilities to deliver the necessary capabilities in an emergency. According to the FY DHS Strategic Plan, DHS s mission is to achieve a safe, secure, and resilient homeland [and specifically] ensure resilience from disasters. Two DHS goals support this mission: (1) enhance national preparedness through a Whole Community approach to emergency management and (2) ensure effective emergency response. FEMA s Strategic Plan identifies the agency s mission as support our citizens and first responders to ensure that we work together to build, sustain, and improve our capability to prepare for, protect against, respond to, recover from, and mitigate all hazards. Important to preparedness are two initiatives identified in the plan: (1) a Whole Community approach to the practice of emergency management nationally that aims to include volunteer, faith- and community-based organizations, the private sector, and the public and (2) building unity of effort and common strategic understanding among the emergency management team. Through CSEPP, CMA s vision helps the Army create a safer tomorrow by making chemical weapons history. Indeed, the CSEPP is expressly embedded in the CMA mission to enhance national security by storing and ultimately eliminating U.S. chemical warfare material (CWM), while protecting the workforce, the public and the environment to the maximum extent. External Factors and Challenges While the Army and FEMA strive to execute CSEPP using available resources budgeted to the program, key external factors (including programmatic, political, regulatory, and technological issues) can have a significant effect on the achievement of these goals. 8 CSEPP STRATEGIC PLAN

15 Programmatic The installations and local and state governments must maintain a fully operational CSEPP effort through the end of disposal operations at each stockpile site. However, the nature of the disposal operations entails some uncertainty as to how quickly they will conclude. Delays and extensions of chemical disposal operations will require continued CSEPP operations, increasing the cost of the program beyond past projections; similarly, disposal operations may run ahead of schedule leading to an earlier end to CSEPP at a given site. Program managers must continuously monitor disposal operations progress and adjust planning for CSEPP accordingly. Retention of qualified staff through the end of the program will be an ongoing challenge. The reduction in the number of CSEPP sites has been accompanied by a reduction in the pool of talent and expertise available for program support activities. For example, in the past, staff from all CSEPP sites routinely supported federally mandated CSEPP exercises. The remaining two sites now only have support of staff from one other site versus several. CSEPP now uses former government and local emergency managers as subject matter experts (SMEs) to support the program, including the evaluation of exercises. Another challenge will be maximizing CSEPP s legacy as the program reaches its end. Participating in CSEPP has ensured that current and former CSEPP communities are better prepared to respond to all hazards. Careful planning and preparation will be required to ensure that facilities, equipment, training, and knowledge gained through CSEPP are maintained and applied in useful ways following the end of the program. Political Congress ultimately funds CSEPP through defense appropriations and will understandably question the Army and FEMA, as necessary, as to the execution of those funds. Increasing expectations for the Army and FEMA to provide particular capabilities for off-post communities may arise without accompanying resources. This could compromise the Army s and FEMA s ability to succeed at its core mission. Public involvement with local, state, and Federal legislative representatives will continue through the program s execution. In addition to maintaining a strong relationship with the public, rapid and continuous communication with these representatives is key to ensuring that the Army s and FEMA s actions are understood. As a federally funded program, CSEPP is subject to the legislative appropriations process and will be affected by budgeting priorities and constraints from year to year. It is incumbent on program managers to ensure that program needs and requirements are clearly articulated to higher Headquarters, congressional offices, and the public. At the same time, program managers must be cognizant of budgetary trends and use best efforts to achieve program goals with the resources available. Regulatory CSEPP historically has adopted new standards and doctrines that affect emergency preparedness, including chemical agent exposure guidelines and presidential directives on incident management and emergency response. CSEPP will continue to coordinate with the Department CSEPP STRATEGIC PLAN 9

16 of Homeland Security, Department of the Army, Army Public Health Command, Environmental Protection Agency, Centers for Disease Control and Prevention, and other agencies as required to ensure CSEPP is consistent with the most current standards, directives, and guides. Technological Emergency preparedness and response capabilities must be maintained to achieve full operational readiness through the disposal of chemical agents and materials. As the CSEPP effort has extended longer than had been expected, some equipment procured by counties and states has become obsolete, new systems have become available, and new standards and protocols have been adopted. The overall costs and benefits of replacing or supplementing current technology with new systems must be weighed to identify the true impact on emergency preparedness and response capabilities. Implementation CSEPP implements the program goals as detailed in this plan and the CSEPP National Benchmarks through a series of guidance documents. These include, in addition to overall program guidance, specialized, detailed guidance in areas such as grants management, public affairs, medical preparedness, protective actions for the public, and conduct of exercises. Guidance is developed with the participation of all elements of the CSEPP community. Summary The CSEP Program is a key component of fulfilling DOD s statutory mandate to destroy the nation s stockpile of lethal unitary chemical agents and munitions while providing maximum protection for the environment, the general public, and the personnel involved. CSEPP builds capabilities and coordination among Army, FEMA, state, local, and other Federal agencies for response to a chemical weapons accident or incident. In doing so, CSEPP will leave a legacy of capabilities, tools, techniques, and training to provide a lasting benefit for participating jurisdictions and the wider emergency preparedness community. The strategic directions established in this plan are implemented through specific guidance, administrative and budgeting mechanisms, and a standard set of benchmarks for measuring progress. 10 CSEPP STRATEGIC PLAN

17 Appendix A: Description of CSEPP National Benchmarks The following material describes the 12 CSEPP National Benchmarks. Each description contains the following elements: Intent describes why the Army and FEMA established this benchmark. Each benchmark contributes to the overall goal of providing maximum protection. Actions Required identifies what specific, minimum activities are necessary to achieve compliance with the benchmark for each CSEPP jurisdiction. The Army and FEMA provide the resources and support to enable these activities. Performance Measures list the general tools that are used by the Army and FEMA to assess the status of the benchmark. There may be additional community-specific tools (e.g., reports) that support this assessment. These descriptions have been incorporated into the CSEPPWebCA application to enable their use at the state and local level in the preparation of annual CA applications and quarterly narrative reports, as well as the development of staff work plans. More detailed information on the elements of each benchmark can be found in the CSEPP Program Guidance. CSEPP STRATEGIC PLAN 11

18 Benchmark 1: Administrative Support (ADM) Administrative support for each CSEPP installation, state, and county necessary to support their CSEPP preparedness activities. Intent Successful execution of CSEPP relies on the day-to-day performance of a strong core of professionals managing the program at the installations and at the state, county, and Federal levels. Program managers conduct deliberate evaluations of requirements needed to sustain a maximum protection capability. The states requirements are examined against LCCEs, validated by FEMA, and funded by the Department of the Army. The installations must similarly evaluate their needs and submit budgets through the CMA, which are then funded by the Department of the Army. The process of planning, programming, and budgeting CSEPP funds must be accomplished promptly and efficiently while ensuring that the funds are executed against validated requirements. Actions Required Support CSEPP by developing staff work plans, purchasing supplies, maintaining equipment inventory, administering contracts, and monitoring projects. Create and negotiate a budget within FEMA regions for the next fiscal year by creating and executing a budget package using CSEPPWebCA software in accordance with the annual CSEPP CA Guidance. Implement the current fiscal year budget award by maintaining current readiness and initiate new projects as specified within the current budget award. Monitor program progress; request budget amendments and extensions, as required; and create and submit timely quarterly reports on financial and program progress. Submit closeout documentation for prior-year CAs. Performance Measures The on-post and off-post communities ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Timely programming and budgeting actions and release of annual funding to the grantees addressing all validated requirements. 12 CSEPP STRATEGIC PLAN

19 Benchmark 2: Alert and Notification (A&N) Functioning alert and notification system extending across the installation and appropriate off-post jurisdictions to communicate protective actions and other critical response information to the public. Intent A well-designed and maintained alert and notification system enables officials to provide timely, appropriate warnings in the event of a chemical incident or accident. The program provides an automated, networked, 24-hour operational capability to warn the public of a chemical event, to confirm that an incident or accident has occurred and to inform them when it is safe to return to their homes. This capability, integrated appropriately with state and Federal systems, includes the use of sirens, public alert radios, highway message reader boards, and other community methods in a layered approach aimed at reaching the greatest percentage of the population. In addition, CSEPP managers must test and evaluate this capability to ensure it is adequate to warn all threatened populations on the installations and throughout the off-post hazard zones. Actions Required Develop and maintain alert and notification procedures addressing specific roles and responsibilities, including initial activation of warning systems, selection of warning messages, confirmation of activation, repetition of warnings, and issuance of all-clear messages. Ensure CSEPP personnel coordinate chemical event notifications and other relevant information between installation and community EOCs in compliance with Army guidance and local MOUs. Develop and maintain scripted, system-specific warning messages based on the site s chemical event emergency classification system and a predetermined protective action strategy. Maintain the ability to control the alert and notification from two systems. Maintain a 24-hour operational capability for both initial and ongoing alert and notification activities. Maintain a current program of regular preventive maintenance and testing of all elements of the primary and alternate alert and notification systems. Evaluate the effectiveness of the alert and notification system periodically to ensure that alert signals and notification messages in each area of the IRZ are of sufficient volume to be heard above ambient noise levels. Performance Measures Results of regular system testing and the frequency and duration of service interruptions. Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Performance at the annual CSEPP and quarterly Chemical Accident or Incident Response and Assistance (CAIRA) exercises and real-world emergency situations. CSEPP STRATEGIC PLAN 13

20 Benchmark 3: Automation (AUT) Functioning automation system for rapid exchange of chemical hazard modeling and protective action analysis between the CSEPP installation, state, and counties. Intent Promptly and accurately detailing a common operating picture for all community responders based on hazard prediction for a chemical accident or incident is a daunting task. It requires a validated and verified automation tool that can be employed at the installation and county level without excessive training requirements. The automation software must be able to accurately predict the projected path and timing of a chemical agent plume over the local terrain in all weather conditions and take into account protective action strategies, daily work plans, and event alert and notification procedures. These decision support tools provide installation and county emergency managers with valuable data formatted for rapid assessment and decisions, which can then be communicated over the alert and notification system to the protective zones and EOCs. Finally, the system must be supported by a network of meteorological towers, interconnected servers and other hardware, and personal computing devices to enable personnel to provide, access, and analyze critical information. Actions Required Adopt an integrated automation system that supports the accredited CSEPP hazard modeling software, the installation s and community s protective action recommendation, determination and alert and notification protocols, and event notification and management to meet specific community needs. Ensure that the automation system is compatible with jurisdictional emergency management software for hazard prediction, hazard communication, and protective action recommendations. Ensure that the automation system meets with Army, state, and county information technology standards and requirements for hardware and software and incorporates appropriate security features. Maintain the automation network and associated instrumentation, providing the maximum practical reliability when used among the installation EOC, the state, and all off-post local jurisdictions. Performance Measures Results of regular system testing and the frequency and duration of service interruptions. Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Performance at the annual CSEPP exercise and, as applicable, quarterly CAIRA exercises and real-world emergency situations. 14 CSEPP STRATEGIC PLAN

21 Benchmark 4: Communication Systems (COM) Functioning communications links between the CSEPP installation, state and county EOCs, and the JIC to support coordinated implementation of response plans. Intent Delivery of information from the installation to county and state EOCs is a critical function to support command and control of emergency response and recovery. Emergency data and warning messages need to be communicated within minutes after an event, allowing EOCs to communicate hazard information and associated actions promptly to the public so they can take the necessary protective actions. Communication systems must be maintained to provide this capability around the clock, without failure, connecting Federal, state, and local emergency managers with a seamless and continuous thread of information. Such systems include interoperable public safety radio, telephones, and dedicated hotlines. Actions Required Maintain primary and alternative direct communications systems, providing the maximum practical reliability when used among the installation EOC, the state, and all off-post local jurisdictions. Use the communication systems to provide public alert and notification and the delivery of other emergency-related public information. Ensure the availability of backup power for its communications systems and maintain 24- hour operational capability for its communications links. Develop, maintain, and adhere to standard operating procedures for sending, receiving, recording, disseminating, and validating communications. Develop and implement a program of regular preventive maintenance of all communications equipment, including a program of regular testing of all communications links. Performance Measures Results of regular system testing and the frequency and duration of service interruptions. Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Performance at the annual CSEPP exercise and, as applicable, quarterly CAIRA exercises and real-world emergency situations. CSEPP STRATEGIC PLAN 15

22 Benchmark 5: Coordinated Plans (COP) Coordinated plans for response to hazards from the stockpile for each CSEPP installation, state, and county. Intent Installation, county, and state emergency planners prepare coordinated plans to respond to all potential hazards and related requirements, ensuring that all personnel and resources that have a role in responding to chemical accidents and incidents are taken into account. These plans outline roles and responsibilities; relationships between Federal, state, and local agencies; and resources and actions required. CSEPP plans are updated periodically and tested during annual exercises to ensure all requirements are addressed and all personnel understand their roles and responsibilities. CSEPP emergency operations plans should be integrated with other emergency planning and be consistent with CSEPP and other applicable Federal, state, and local guidance. Actions Required Identify assignments for primary and support roles and responsibilities for all key emergency functions. Develop procedures for implementing responses to a chemical munitions accident or incident for all emergency officials in public, private, and not-for-profit-sector organizations. Develop procedures for local implementation of the JIC/JIS [Joint Information System] concept for emergency public information. Describe the standard chemical event emergency notification systems being used, as well as appropriate response actions based on each notification level. Develop policies for the local implementation of public alert and notification system, in accordance with the local protective action strategy. Specify the relevant emergency personnel, units, and organizations and list associated equipment/systems assigned to support response operations. Maintain letters of agreement, mutual aid plans, and any memorandums of agreement or MOUs between local officials and other public, private, and not-for-profit organizations as needed to provide or direct resources to support a response. Conduct regular community review of plans and procedures to ensure synchronization. Performance Measures Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Performance at the annual CSEPP exercise and, as applicable, quarterly CAIRA exercises and real-world emergency situations. 16 CSEPP STRATEGIC PLAN

23 Benchmark 6: Emergency Operations Centers (EOC) Functioning EOCs at each CSEPP installation, state, and county to support coordinated implementation of response plans. Intent A functioning EOC is the nerve center of any response to a chemical accident or incident, providing direction and support to the emergency responders. As such, installations, counties, and states must ensure their EOCs are adequately equipped to support communication to and from higher and lower agencies, allowing personnel to warn the general public, plan and execute required protective action strategies and response actions, and coordinate the reentry and recovery of areas affected by a chemical accident or incident. Actions Required Provide adequate office furniture, equipment, and supplies to support operations and provide adequate storage space for medicines, food, additional office supplies, and any other equipment needed. Provide sanitary facilities and, if required, sleeping accommodations adequate for half the total assigned staff at a time. Provide an emergency power source with an independent fuel supply, adequate for operating all necessary equipment. Provide a potable water supply that is adequate to support the fully staffed EOC and not dependent on commercial power or susceptible to disruption by disaster conditions. Provide a food supply adequate to feed the full staff for several days, which may be delivered from outside and/or stocked within the EOC. Provide a regular schedule for testing and maintaining the EOC equipment. Performance Measures Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Performance at the annual CSEPP exercise and, as applicable, quarterly CAIRA exercises and real-world emergency situations. CSEPP STRATEGIC PLAN 17

24 Benchmark 7: CSEPP Exercises (EX) An exercise program that effectively tests integrated response capabilities and preparedness. Intent A well-developed exercise program evaluates and demonstrates the abilities of communities and installations to respond to chemical accidents and incidents. Exercises are an important element in evaluating the implementation of emergency response plans and assessing the adequacy of plans and procedures, the capabilities of Federal, state, local, and installation response elements, the availability of equipment, and coordination among response elements. Exercises also identify needed improvements and possible new funding requirements. Specific guidance on CSEPP exercise planning, conduct, and evaluation is provided in the CSEPP Exercise Policy and Guidance. Actions Required Prepare and submit an annual exercise date two years in advance of the current year to the CSEPP Training and Exercise Working Group. Assign adequate installation, state, and county representatives to serve on the exercise planning teams for each exercise. Develop appropriate ground rules and extent of play agreements to ensure robust exercise activity and demonstration of exercise objectives. Develop an extent of play agreement (XPA) for each exercise to provide the basis for scenario development and document commitments to exercise participation. The XPA begins with the assumption that the community will fully respond according to their plans and will describe any deviations, such as simulations, out-of-sequence play, or nonparticipating organizations. Ensure that installation commanders and community officials support all exercises with reliable and qualified evaluators. Performance Measures Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Annual CSEPP exercise, after-action report, and corrective action plan executed in accordance with Program Guidance and Exercise Policy and Guidance. 18 CSEPP STRATEGIC PLAN

25 Benchmark 8: Medical Preparedness (MED) A medical program to support on- and off-post medical preparedness among first responder and receiver organizations for a chemical weapons accident or incident. Intent CSEPP installations and communities must be prepared to triage, treat, and transport casualties resulting from a chemical accident or incident. This medical capability is based on plans and procedures that detail the medical concepts of operations and coordinated response actions to prepare for and respond to a chemical accident or incident. These plans include anticipated response, medical resources, training, and exercise actions. Medical training and exercises, including the use of medical countermeasures and personnel/patient decontamination, are vital parts of state and local emergency preparedness. Specific medical guidance is provided in CSEPP guides and evaluation tools developed by the program. Actions Required Develop regular training for first responders and first receivers to perform specified patient care activities, such as screening, triage, treatment, decontamination, transport, disposition, and patient tracking. Develop medical emergency operations that are in accordance with CSEPP guidance and Federal, state, local, and generally accepted standards for patient care and worker protection. Coordinate medical plans and procedures, as appropriate, with the CSEPP alert and notification system, JIC, and JIS. Ensure that medical personnel participate in community response and recovery planning and community-based exercise and evaluation programs. Performance Measures Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Performance at the annual CSEPP exercise and, as applicable, quarterly CAIRA exercises and real-world emergency situations. CSEPP STRATEGIC PLAN 19

26 Benchmark 9: Qualified Personnel (PER) Specialized personnel, such as CSEPP manager, public information officer, planner, and information technology specialist, to support CSEPP activities at CSEPP installations, states, and counties. Intent Trained and qualified personnel are vital to the successful sustainment of installation, county, state, and Federal response capabilities. Plans, procedures, and equipment are useless without people overseeing the effort who are prepared to implement procedures and coordinate response actions. These CSEPP-funded personnel run the day-to-day execution of the program, including the periodic program management tasks required to ensure that emergency responders are adequately trained and equipped to complete their missions. Actions Required Establish an administrative system for performing day-to-day operations. Ensure employee job descriptions are developed as needed, detailing each position s specific assignments in the event of an emergency or disaster. Develop and update employee work plans yearly as part of the CA package for program funding. Ensure that vacancies occurring in CSEPP-funded positions are promptly filled with qualified personnel. Performance Measures Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Quarterly performance reports for off-post jurisdiction personnel (derived from annual workplans) and completed and submitted within the CSEPPWebCA software. 20 CSEPP STRATEGIC PLAN

27 Benchmark 10: Protective Action Strategies (PRO) Protective action strategy for each jurisdiction that is based on the threat from the stockpile, consistent with response plans, and conforms to established CSEPP guidance. Intent Each community surrounding a chemical stockpile site has a unique topography, infrastructure, and set of capabilities, and each installation holds a unique set of chemical agents and/or munitions. Because of these differences, each site requires a unique protective action strategy that enables communities to take the necessary actions to protect themselves from exposure to chemical agents. These strategies account for plume pathways, population density, highway network, evacuation times, weather, and other variables to ensure the maximum possible protection for people in potential hazard areas. In order to be successful, the protective action strategy must also be communicated, understood, and executable by the community. Actions Required Develop a coordinated, local decision-making process for selecting and implementing protective actions that can be rapidly implemented on a 24-hour basis. Ensure the strategy is based on scientifically sound risk assessment methodology for chemical warfare agents. Address the selection and implementation of access and traffic control points; criteria for combining evacuation and/or in-place sheltering as public protection measures; and protective measures for populations with access and functional needs. Identify procedures for the safety and protection of emergency workers and measures to address potential impacts on domesticated animals, crops, and water supplies. Regular review and adjustment as needed of protective action strategies, in light of changes in risk, infrastructure, standards, or other factors that may affect choice of protective measures. Performance Measures Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Performance at the annual CSEPP exercise and, as applicable, quarterly CAIRA exercises and real-world emergency situations. CSEPP STRATEGIC PLAN 21

28 Benchmark 11: Public Outreach/Education (POE) A program for coordinated emergency public information and education, including a public outreach/education program to enhance CSEPP awareness and familiarity with the protective action strategy. Intent The role of public outreach efforts is to improve the public s and the news media s awareness of CSEPP. Getting CSEPP information to the public and the media has two different but complementary aspects. The first requirement is to improve the public s awareness of CSEPP and their (the public s) role during an emergency through various methods, such as outreach offices, phone and mail communications, and the Internet. The second requirement is keeping the public and the media informed during an actual chemical accident or incident. An informed and active public is a strong partner. Actions Required Develop and implement a Joint Information System that will function as an information sharing and mutual support network for public affairs officers. Develop a JIC plan that will help participating jurisdictions to coordinate and disseminate rapid and accurate information during an emergency from a central facility to media outlets and the public. Develop and implement a public education program to increase the public s knowledge of stockpile hazards, sources of emergency information, and emergency protective actions. Performance Measures Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Performance at the annual CSEPP exercise and, as applicable, quarterly CAIRA exercises and real-world emergency situations. Ongoing assessments of community awareness of CSEPP, the nature and risks associated with the chemical stockpile, how to obtain emergency information, and potential actions to take in a chemical emergency. 22 CSEPP STRATEGIC PLAN

29 Benchmark 12: Training Programs (TNG) Training programs, consistent with CSEPP guidance, state and local training plans (for off-post jurisdiction personnel) and Army certification requirements (for installation personnel) that maintain proficiency of emergency services providers/responders and CSEPP staff. Intent Because of the unique hazards created by the storage and elimination of chemical weapons, CSEPP personnel and emergency responders must maintain specialized proficiencies to respond to chemical accidents or incidents. This can include practice with hazard prediction modeling tools, use of personal protective equipment and medical countermeasures, sheltering-in-place drills, decontamination procedures, communications exercises, and other technical aspects of incident command, hazardous material response, and emergency medical treatment. In addition, CSEPP training encompasses preparedness activities, such as exercise evaluation. Actions Required Conduct training needs assessments to inventory and track the needs and skill levels of CSEPP staff requiring specific training or specialized skills. Identify training coordinators for each installation, state, and county to ensure annual training is available as required, that appropriate training materials and measurement tools are used, and that appropriate training records are maintained. Employ competent training instructors based on the needs assessment, ensuring that all training is job-specific and documented. Assess the effectiveness of each training course and each trainee s performance and ability to meet course objectives. Performance Measures Each state s and installation s ability to meet and sustain full compliance to this benchmark s standards, as measured by the Community Profile process. Availability and quality of training materials for installation, state, and county responders. CSEPP STRATEGIC PLAN 23