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CHEMICAL MANUFACTURERS ASSOCIATION ROBERT A. ROLAND President April 1985 TO: Recipients of the Community Awareness and Emergency Response Program Handbook CMA member company representatives have designed this handbook for your use. It suggests ways to renew or start a community emergency response effort. I encourage you to use it and share it with members of your community. As a supplement to the handbook, CMA will hold 6 regional workshops in June 1985. You will receive specific information about the workshop from your company's CAER Coordinator. If you have any questions, please contact your company's CAER Coordinator, or call CMA's CAER Coordinator, Christopher Cathcart at (202) 887-1265. BOR 007596 Formerly Manufacturing Chemists Association--Serving the Chemical Industry Since 1872. 2501 M Street, NW Washington, DC 20037 Telephone 202/887-1106 Telex 89617 (CMA WSH) ragrarrr landbool COMMUNITY AWARENESS AND EMERGENCY RESPONSE PROGRAM HANDBOOK Prepared by: Member Companies of the Chemical Manufacturers Association 2501 M Street, NW Washington, D.C. 20037 (202) 887-1100 BOR 007598 ( PREFACE The chemical industry is one of the safest industries in the United states. This is a result of the excellent job that we do in preventing accidents. Accidents, however, can occur. For many years, the chemical industry has had emergency response plans. The Community Awareness and Emergency Response (CAES) Program has been adopted by member companies of the Chemical Manufacturers Association (CMA) to integrate these plans with community emergency response plans. Member companies will rely upon you, the plant manager, to help make this program work. This handbook will assist you in this task. The handbook was prepared by a group of member company emergency planning experts, an emergency planning consulting company and CMA staff. The handbook explains the program, suggests ways to get started, and presents a step-by-step approach to implementation. Although the approach to implemen ting this program will vary from plant to plant, this handbook will be useful in your situation. April, 1985 -i- BOR 007599 TABLE OF CONTENTS PREPACE TABLE OF CONTENTS INTRODUCTION COMMUNITY AWARENESS EMERGENCY RESPONSE PLANNING How to Get Started Community Emergency Plan Implementation Steps Community Involvement APPENDIX 1 - TYPICAL COMPONENTS OF A CHEMICAL PLANT EMERGENCY RESPONSE PLAN APPENDIX 2 - HIGHLIGHTS OF INTERRELATED PLANT, COMMUNITY AND STATE PLANS APPENDIX 3 - MULTICOUNTY PLANNING AND PUBLIC EDUCATION IN NEW YORK STATE * APPENDIX 4 - MEMPHIS-SHELBY COUNTY, TENNESSEE HAZARDOUS MATERIALS ADVISORY COUNCIL APPENDIX 5 - LOUISIANA CHEMICAL ASSOCIATION COMMUNITY AWARENESS PROJECT SUMMARY APPENDIX 6 - SELECTED READING LIST Page i ii 1 12 16 16 19 39 41 43 48 * 49 50 51 BOR 007600 COMMUNITY AWARENESS AND EMERGENCY RESPONSE PROGRAM INTRODUCTION The CAER Program The Community Awareness and Emergency Response (CAER) Program is a chemical industry initiative designed with two related purposes: 1. To develop a community outreach program and to provide the public with information on chemicals manufactured or used at local chemical plants. This effort is described in the section titled COMMUNITY AWARENESS (p. 12). 2. To improve local emergency response planning by combining chemical plant emergency plans with other local planning to achieve an integrated community emergency response plan. The section titled EMERGENCY RESPONSE PLANNING (p. 16) provides a procedure by which you, as plant manager, can serve as a catalyst to get this process started. The American public is concerned about chemical hazards, the possibility of a serious chemical emergency and the steps industry is taking to prevent such an occurrence. The member companies of CMA recognize the need to provide the com munity with information on chemicals manufactured or used locally. The member companies also realize that, while most chemical plants have adequate emergency plans, there is room for improvement by more effectively integrating plant em ergency response plans with those of the community. The CAER program is a cri tical element in dealing directly and expeditiously with the public's concern. The Objectives of the CAER Program The overall goal of the program is to improve the protection of public health and safety in the community. The specific objectives are: 1. Provide information to the public on hazardous chemicals. 2. Review, renew or establish emergency response plans. 3. Expand the chemical industry's involvement in community response planning and emergency networks. 4. Integrate chemical plant* emergency response plans with other community emergency response plans to form an overall plan for handling all emergencies. 5. Involve members of the local community in the development and implementation of overall emergency response planning. The term "chemical plant" used in this handbook includes all chemical industry facilities including manufacturing plants, distribution facilities, warehouses and transportation systems. BOR 007601 -1- The Plant Manager's Role You, as the plant manager, are asked to: 1. Develop a community outreach program and provide a means for res ponding to community requests for information on chemical hazards as described in the section titled COMMUNITY AWARENESS (p. 12). 2. Assure that the plant risk assessment and emergency response plan are in order. APPENDIX 1 (p. 41) provides an outline of typical components of a chemical plant emergency response plan. 3. Serve as the catalyst to initiate integrated community emergency response planning. This doesn't mean you have to do the plan yourself or necessarily be the task force leader. It means you should present the program to key officials and enlist their support and assistance in developing a Coordinating Group. The section titled EMERGENCY RESPONSE PLANNING (p. 16) begins with suggestions on how to get started in this "catalyst" role. Figure 1 illustrates the anticipated flow of information to the plant manager and on to the community. The roles of the Chemical Manufacturers Association, the Company CAER Coordinator, and the Coordinating Group are discussed below. The Chemical Manufacturers Association's Role The CMA will continue its support of the program throughout the implementation period. Specific actions will include: 1. Regional workshops designed to aid the plant manager in understanding and implementing CAER. 2. Compilation of status reports submitted by plant managers and Company CAER Coordinators and periodic transmittal of industry-wide progress reports. 3. Direct response to plant manager questions on the program. 4. Onsite assistance where specific problems require special expertise. 5. Additional written guides when a specific need for clarification or additional information is identified. In addition, CMA has initiated activities to inform national media of the program, to brief legislative and executive branch contacts at the national and state levels and to brief other trade associations and organizations. Bor 76o2 FIGURE 1 FLOW OF EMERGENCY RESPONSE INFORMATION TO EXPECTED PARTICIPANTS BOR 007603 3 The Company CAER Coordinator's Role Member companies have been asked to assign a Company CASK Coordinator to work with their facilities and the CMA and to assist in providing company support where necessary. The Coordinating Group's Role Integrated community planning requires the cooperative efforts of both industry and local government. Industry is primarily responsible for protective actions "inside the fence" while local government is responsible for the safety of the general public, the role of the Coordinating Group (or whatever name ' it is called) is to provide the bridge between industry and local government (see Figure 2) and develop a unified and coordinated approach to emergency response planning and communication with the community. The Target Dates for Implementation The following are target dates for completing pertinent milestones in the CAER program: Milestone Event Target Date 1. Plant manager completes review of this handbook and attends a workshop. 7-1-85 2. Plant manager initiates discussions with local officials to set'up a Coordinating Group. 7-1-85 3. The Coordinating Group completes a draft of the integrated community emergency response plan* 12-31-85 4. The Coordinating Group completes the plan and it is approved by local officials. 6-30-86 5. A comprehensive test of the integrated community emergency response plan has been successfully completed. 12-31-86 6. The Coordinating Group conducts an annual review, revises the plan and successfully retests it. Annually The following pages present tear-out status reports for each milestone. plant manager is asked to submit these to his Company CAER Coordinator will forward them to CMA. These reports are necessary to determine overall status of industry emergency response efforts. The who the BOR 007604 -4- INDUSTRY RESPONSIBILITIES Assure safe voik practices. Assure employees personal Bafety and the safety of visitors. Establish safety programs. Protect lives and property onsite. Coordinate all plant personnel during an emergency. Develop plans and procedures to respond to emergencies. Provide security, safety equipment, general training, and information on chemical hazards. '`S ') PIGURB 1 RESPONSIBILITY BRIDGE COORDINATING CROUP BRIDGING ACTIONS * Open lines of communications. * Information sharing. * Coordinate eaiergency plans and procedures, * Interact with other response agencies. emergency * Joint education and training. * Common problem solving group. * Mutual aid ass1stance. LOCAL GOVBRWEWT RESPONSIBILITY 1. Provide a safe community. 3. Assure the safety and well being of all residents and transients within community. 3. Establish programs. public safety 4. Protect lives, as well as priv ate and public property. 3. Coordinate coasaunlty emergency response forces during an emergency. t. Develop plans and procedures to respond to estergencies. T. Conduct training, drills, and exercises with other response agencies within the community, area, or state. BOR 007605 COMPANY: PLANT: LOCATION: PLANT MANAGER: CASH STATUS REPORT NO. 1 11 1 | MILESTONE: 11 Program review and workshop attendance 11 11 11 1 1 TARGET DATE: 1! 7-1-85 1 1 STATUS: I |1 1 1 1 1 1 1 1 1 I____ 1 11 11 I received the CAER Handbook I completed my review on (Name) (Date) (Date) (Date) attended a CAER Workshop on * COMMENTS: Date Plant Manager Signature NOTE: submit this report to your Company CAER Coordinator when the milestone has been completed. BOR 007606 COMPANY: PLANT: LOCATION: PLANT MANAGER: CAER STATUS REPORT NO. 2 11 1 1 MILESTONE: initiate discussions 1 1 on CAER with local 1 1 officials 11 11 11 1 1 TARGET DATE: 7-1-85 11 STATUS: I I I have initiated discussions on the CAER program with local emergency response officials including (list): COMMENTS: Date Plant Manager Signature NOTE: Submit this report to your Company CAER Coordinator when the milestone has been completed. BOR 007607 -7- COMPANY: PLANT: LOCATION: PLANT MANAGER: CAER STATUS REPORT NO. 3 11 1 1 MILESTONE: A draft of the 1 1 community plan is 1 1 complete 11 11 11 1 1 TARGET DATE: 12-31-85 11 STATUS: 1 I A draft of the integrated community emergency response plan was completed on . (Date) COMMENTS: Date Plant Manager Signature NOTE: Submit this report to your Company CAER Coordinator when the milestone has been completed. BOR 007608 -8- 1 1 COMPANY: 1 1 PLANT: 1 1 LOCATION: 1 | PLANT MANAGER: 1 CAER STATUS REPORT NO. 4 11 1 1 MILESTONE: I1 11 The community plan has been approved by local officials II1I 1I 1 1 TARGET DATE: 11 6-30-86 STATUS: |____ | The final integrated community emergency response plan was completed on on (Date) (Date) * and approved by local officials COMMENTS: Date Plant Manager Signature NOTE: Submit this report to your Company CAER Coordinator when the milestone has been completed. BOR 007609 -9- COMPANY: PLANT: LOCATION: PLANT MANAGER: CAER STATUS REPORT NO. 5 MILESTONE: Successful completion of a comprehensive test of the plan TARGET DATE: 12-31-86 STATUS: I I A comprehensive test of the integrated community emergency plan was successfully completed on . Participants included (check all that apply): (Date) 1____ | Plant I____ 1 Town/City 1____ | County 1____ 1 State 1____ 1 Neighboring Companies [ ! Other COMMENTS: Date Plant Manager Signature NOTE: Submit this report to your Company CAER Coordinator when the milestone has been completed. -10- BOR 007610 I I COMPANY: ______ I | PLANT; _________ I I LOCATION: _____ I | PLANT MANAGER: I____________________ CAER STATUS REPORT NO. 6 MILESTONE: Annual plan review, revision and successful retest TARGET DATE: Annual STATUS: Formal annual review of the integrated community emergency response plan was completed on . (Date) I____ I The plan revisions were completed on (Date) . A successful retest was completed on . (Date) COMMENTS: Date Plant Manager Signature NOTE: Submit this report to your Company CAER Coordinator when the milestone has been completed. BOR 007611 -11- COMMUNITY AWARENESS The basis of any effective community awareness and emergency response program is an informed public familiar with the operations of local chemical plants. Such a public will be better able to understand the emergency response plans that plant managers will help communicate to it. Community awareness is a recurring theme in the CAER program. One of the first steps is to go into the community and contact the people who are needed -to participate in emergency planning. This initial contact will include a description of the facility/ its safety and accident prevention programs/ its emergency response capability and its safe operating history. (See STEP 2 of the section titled How to Get Started/ p. 17). The CAER handbook stresses the need to continue to involve the community and to educate the public during the entire implementation process (see STEP 10 of the Implementation checklist, p. 38, and the section titled Community Involvement, p. 39). Therefore, the plant manager should consider outreach programs as a general response to the public's demand for information, and as a means to create an educated community that is able to participate effectively in the emergency response program. The plant manager's role as a catalyst in any planning effort will be easier if the community knows what goes on inside facilities and what safety measures are in place and what emergency preparedness measures are taken. The public's fears about chemical hazards also will be diminished. Outreach programs could include speaking at community meetings (e.g., school and church groups, service clubs and City Council meetings), plant tours and brochures explaining the facility. The Louisiana Chemical Association's Community Awareness Project is a good example of an outreach program (see APPENDIX 5. p. 50). Outreach programs not only help the plant manager carry out the emerg ncy preparedness effort, they will also help carry out CMA policy on the public's right to have access to information. (See attached policy statement on Community Right-to-Know, p. 14). The member companies of CMA believe that the chemical industry has a responsibility to provide information on hazardous materials to the public. Members of the public (emergency responders, physicians, the general public) are most likely to turn to the local chemical plant manager for the information they need. The plant manager must be prepared to respond to these inquiries. The information provided should be tailored to the needs of specific groups. For example, emergency responders may want to know not only what chemicals are present, but also in what amounts, so the potential danger in an emergency can be assessed. Physicians may need to know specific chemical identity if a trade secret claim has been made for a chemical to which a patient has been exposed. Information available to workers under the federal hazard communication standard should also be used to respond to public inquiries. The standard requires manufacturing employers to make workplace lists of hazardous chemicals and Material Safety Data Sheets (MSDS) available to workers. This same information is a practical means of responding to many requests from the public. In regard to the MSDS, many emergency response personnel, members of the community and federal, state and local governments feel the MSDS is the most appropriate form of information to be provided. Since the MSDS, as a -12- BOR 007612 result of the hazard communication standard, will be available to about one million chemical workers alone, the MSDS can be considered to be in the public domain. Therefore, when the public requests an MSDS or MSDSs, that informa tion should be given. Chemical companies may wish to supplement the MSDS with other information, such as product safety bulletins or special training programs to help the layperson understand the information. Again, outreach programs will serve these needs. \ BOR 007613 13- CHEMICAL MANUFACTURERS ASSOCIATION POLICY ON COMMUNITY RIGHT-TO-KNOW Background o The public is concerned that hazardous chemicals produced in or trans ported through their communities may have an adverse effect on their health and safety and the health of future generations. This concern is becoming more widespread and emotional. o The public perceives that informaton on hazardous chemicals is being hidden from them. This perception is precipitating the right-to-know legislation. In 1985, several bills have been introduced in Congress, and over 25 states are considering legislation which contain provisions mandating public access to information. o Inconsistent requirements in community right-to-know legislation could be burdensome on industry while simultaneously creating confusion for the public. CMA Position o Implementation of CMA's initiatives on Community Awareness and Emergency Response (CAER) and the establishment of a National Chemical Response and Information Center (NCRIC) is dependent upon a consistent position on the public's right to information on hazardous chemicals. o CMA member companies have a responsibility to provide information on hazardous chemicals to the public. This information should be tailored to the needs of specific groups (e.g., emergency responders, physicians, general public). o Trade secrets must be protected while at the same time providing necessary hazard and health care information to the public. o Information generally available under the federal hazard communication standard should be used to respond to public inquiries. The material safety data sheet or equivalent information is a practical means of responding to many requests. o Industry, state and local government leaders must work together in developing community right-to-know programs. o In the event of any legislation, public access to information should be through a designated state agency. Chemical manufacturers, distributors and importers would provide the required hazardous chemical information to the designated state agency. All community right-to-know legislation should be consistent in its requirements so that the public's awareness of potential hazards will be enhanced. -14- BOR 007614 o Additional information on potential health and environmental hazards posed by chemicals is available to the public through agencies that administer laws such as the "Toxic Substances Control Act" (TSCA), the "Resource Conservation and Recovery Act" (RCRA), the "Comprehensive Environmmental Response Compensation Liability Act" (CERCLA), the "Clean Water Act" (CWA), and the "Clean Air Act" (CAA). -15- BOR 007615 EMERGENCY RESPONSE PLANNING How to Get Started The CAER program is based upon the concept that the local plant manager will serve as the catalyst Cor initiating the integrated community emergency response planning process. Por those plant managers who have already worked with local officials on emergency planning efforts, it is probably fairly clear as to how to get started on this. For others, the process of community interaction and involvement will be new. Following are some suggested steps that you can take simultaneously within your company and outside in the community. These start-up steps as illustrated below in Figure 3 should help you get through the ice-breaking period into full-scale, planning. FIGURE 3 HOW TO GET STARTED 1. Take an inventory of your current knowledge of the status of local emergency planning in communities within a few miles around your plant* Based on your current state of knowledge, try to determine if integrated community emergency response planning is a complex activity (multi-facility/hazard) or basically a local chemical plant function, you can do this by determining the following: o Are there significant natural disaster risks in your area and do emergency plans exist for these risks? -16- BOR 007616 o Are there other industrial risk activities such as nuclear power generation, hazardous waste disposal or significant transportation activities and do emergency plans exist for these risks? o Are there other chemical facilities in your area? o Does your own emergency response plan clearly define the roles and responsibilities of community officials and offsite responders? Develop a standard briefing paper. The briefing paper should describe the facility, its economic position within the community, the key elements of the plant emergency response capability, the excellent safety record of the chemical industry and the objectives of the CAER program. Stress the need for offsite response planning to be integrated with the existing plant response capability. Stress that an integrated community plan can be used to improve emergency response to all hazards. Hake the briefing paper suitable for distribution. Prepare a list of useful initial contacts. The purpose of initial contacts is to share information. You tell them about the CAER program and they tell you who is or should be involved in community emergency response planning. Some suggestions include first responders with whom you have current relationships (fire chief, police chief, ambulance service), mutual aid program participants, local officials you have met, business leaders in the community, and plant employees who may also be elected officials. You may be able to identify useful initial contacts through on-going community relations efforts. The most direct approach is to identify local disaster preparedness officials and use them as initial contacts. Prepare a list and a schedule for meeting with them or holding telephone discussions. Through these initial contacts, identify the appointed and elected officials, whose cooperation will be necessary to complete the integrated community emergency planning process. Meet with these key officials individually, if possible, to explain the program and to enlist their support in establishing a Coordinating Group. In many locations, there may already be the equivalent of this group in place or a well-defined emergency response planning agency. If this is the case, take advantage of that source to initiate this program. BOR 007617 5. Bold a preliminary organizational meeting for the Coordinating Group. Participants should include chief elected officials of the governments that should be involved in planning (county/town/city), key first responders (fire chief, police chief), the local disaster preparedness/civil defense officer, other industry managers, and the plant manager. Other participants could be public health officials, hospital administrators, .Red Cross, or local civic leaders. In most areas, chief elected officials have a general charter to protect public safety. Gaining official charter from the local community is an important prerequisite for the Coordinating Group. This will give the group the necessary muscle to begin the integrated planning process described later in this document. The plant manager should also review internal operations. In addition, some suggested activities include: 1. Review the company emergency response plan to assure that interactions with offsite agencies and responders are clear. Responsibilities should be clearly defined and notification procedures should be well understood. APPENDIX 1 (p. 41) provides an outline of typical components of a chemical plant emergency response plan. Plant managers can use this to assure that internal plans are in order before the community planning process begins* 2. improve employee awareness of emergency response planning. Assure that basic emergency concepts are included in initial training and periodic safety training. Use the plant newspaper or bulletin boards to announce that you have completed a new or revised company plan and have started an integrated emergency response planning process. 3. Prepare a written community relations plan. Begin by compiling a list of local organizations, government agencies, community groups (business, civic, public interest) and local media who should be briefed on the CAER program. Review past local media coverage of the plant and national industry issues. Review past and ongoing plant communications efforts and determine if the community and its leaders are likely to be knowledgeable about the plant. Using this information, prioritize community awareness efforts. Pay special attention to relations with local officials, offsite responder groups, neighborhood associations and labor groups. It may be appropriate to obtain expert assistance in community relations if this is a new activity for you. At this point you, as plant manager, have assured yourself that your internal emergency planning activities are in order and you have either initiated the development of, or identified, the appropriate Coordinating Group. You are now ready to participate as a member of the Coordinating Group. Your first contribution should be a presentation to the Coordinating Group of the ten step implementation process described in the next section. BOR 007618 -18- Community Emergency plan Implementation Steps Based upon industry experience, we have identified a ten step implementation process leading to a useful and effective integrated community emergency response plan* Some communities will have emergency plans in place and will require little effort for some of these steps. In those cases, a review of the guidance associated with each step is necessary to assure that the plan is complete and usable. For example, a well-written plan may exist but training may be weak or there may be no provision for testing the plan. In other cases, significant effort will be required to complete each step. This section describes each step and provides some checklists and other tools which the coordinating Group will find useful. Figure 4 presents a flow diagram for the planning and implementation process. The implementation steps are as follows: 1. Identify the emergency response participants and establish their roles, resources and concerns. 2. Evaluate the risks and hazards that may result in emergency situations in the community. 3. Have participants review their own emergency plan for adequacy relative to a coordinated response. 4. Identify the required response tasks which are not covered by existing plans. 5. Hatch these tasks to the resources available from the identified participants. 6. Make the changes necessary to improve existing plans, integrate them into an overall community plan and gain agreement. 7. Commit the integrated community plan to writing and obtain approvals from local governments. 8. Educate participating groups about the integrated plan and assure that all emergency responders are trained. 9. Establish procedures for periodic testing, review and updating of the plan. 10. Educate the general community about the integrated plan. BOR 007619 FIGURE 4 COMMUNITY EMERGENCY PLAN IMPLEMENTATION FLOW CHART BOR 007620 COHHUHITY EHBBGBHCY PLAH IMPLEMENTATIOH BTEPB Each of the 10 steps is described In acre detail on the following pages. For ease of use, each step Is described In a three column forsat. Column 1 describes the step. Column 2 provides a checklist useful in completing the step and Column 3 presents the results of some Industry case studies. Where appropriate, a reference is made to the other tools available in this handbook to assist in completing each step. STEP 1 Identify emergency re sponse participants and establish their roles, resources and concerns. There la a wide range of potential participants in emergency response. It is important to Identify them early so that their resources can be factored Into the planning and their concerns can be addres sed. Some nay have existing emergency plans which should be obtained. COHHUHITY BHEBGEHCY PLAN 1HPLEHEHTATIOH CHECKLIST Follow these suggested actions to complete STEP li |____| a. Using the knowledge of the Coordinating Group, compile a list of potential participants in emergency response activities. TABLE 1 on the following page identifies possible participants. |___ | b. Obtain copies of existing emergency plans and review these for additional participants. |____| c. Prepare a brief written description of all partici pants, their expected roles and the resources they have available (personnel, equipment, facilities, special knowledge, etc.). || d. Go on to STEP 2. INDUSTRY CASE STUDIES Coordinating groups comprised of a broad base of officials will be in the best position to understand the resources available in the comsHinlty. Some communities may have to reach beyond the usual emergency responders, using volunteer groups where large numbers of responders are needed (e.g., coordinating evacuation). Industry mutual aid agreements may also expand the base of partici pants where utility personnel can assiBt in chemical response and chemical plant personnel assist in a utility failure. BOR 007621 TABLE 1 EXAMPLE LIST OF POTENTIAL EMERGENCY RESPONSE PARTICIPANTS O Industry nuclear power plants other chemical plants warehouses other industries that use chemicals utilities transportation companies o Government elected officials disaster preparedness agencies law enforcement - first responders - specialized response teams - management fire fighters - first responders - specialized response teams - management health department public work's environmental protection transportation - highway - rail maritime (port authorities. Coast Guard, COE) military groups (National Guard, civil Air Patrol) o Other institutions Red Cross hospitals, clinics and ambulance services material and equipment resource suppliers professional societies (physicians, engineers, toxicologists) clubs and fraternal groups print media broadcast media o Public and community at large advisory committees public interest groups sensitive and high density labor groups sites (hospitals, schools, etc.) -22- BOR 007622 STEP 2 Evaluate the risks and hazards_____ which_____________ way result In emergency situationsinthe community. Possible events should be Identified, and their probability of occurrence and the consequences must be addressed in order to set priorities for planning. COMHUHITT EMERGENCY PLAN IHPLBHEHTATIOK CHECKLIST Followthseuegegested actions to complete STEP 21 ____ || a. Using the concerns of the Coordinating Croup, compile a list of potential hazards which nay result in emergency situations in the community. Consider the followingi o chenlcal plants o nuclear facilities o natural disasters o Industrial facilities o transportation activities Define the Magnitude of the risk and the potential severity of inpact by evaluating) o size of potential zone of lapact o nuaber of people at risk o type of risk (toxic, chronic, injury! o long tern lapsets o inpacts on sensitive envlronaental areas For deterainlng probability of occurrence, decide if a qualitative approach is sufficient or whether a quantitative risk assessaent is useful. Factors to consider include) o probability of individual events o probability of siaultaneoua events (e.g., natural disaster resulting in release of hazardous Materials) o coapllcatlons froa unique envlronaental considerations such as severe terrain, location in flood plain, or valley wind conditions )___ | d. Prepare a list of scenarios that could reasonably be expected to occur. Refer to these throughout planning to assure that emergency response could meet the challenges of these scenarios. I| e. Go on to STEP 3. INDUSTRY CASE STUDIES One community used a questionnaire, developed by industry and sent out by the fire departaent, to estab lish contact with local industries, develop preplanning lnforaation, and assess the nature and location of fixed facility risks. State transportation departaente, the Federal Railroad Administra tion, U.S. Coast Guard, airport authorities and local police and fire departments can help establish the nature, quantity and aode for transported Materials. In one city, this type of study identified one specific Interstate Highway interchange that had a high frequency of tank truck rollovers and improved warnings are planned. In one county, the risk valuation lead to the developaient of specific product references, training and the formation of a chealcal hazards information teaa froa a broad base within the community. One community spent little tine on evaluating risk, deciding to focus its energies on better organization for response on the assumption that there was a wide range of chemicals present In the area. BOR 007623 STEP 3 Hava partIclpants re view their own eaergency plan for adequacy relative to a coordi nated response. Eaergency plans exist in various (ores (or aoat areas. Partici pants In the planning process should review their own plans (or adequacy and also (or how the plan cont rlbutes to a coordi nated response. Inter relationships, respon sibilities and coawunicatlons are ieportant Issues (or discussion at this point. Plans requiring review are state and local eaergency nanageaent plans, police and (ire plana, county and city plans, industrial plana, hospital plans and others. COHHUHITT EHERGBHCTf PLAN IMPLEHEHTAT10H CHECKLIST Pollow these suggested actions to conplete STEP 3i I____I ' a. Contact the potential participants identified In STEP 1 and have participants review their own plans. II b. TABLE 2 |p, 25) can be provided to participants to assist then in the review of their plana relative to a coordinated response effort. I____I c. Evaluate the results of the Independent reviews to deteralne overall strengths and weaknesses of the current status of coordinated emergency response. A suaaary evaluation aatrlx such as TABLE 3 Ip. 29) ay prove useful. TABLE ( Ip. IS) presents an exaaple of a cqspleted aatrlx. This will provide an overall sense of the areas where additional work is rsqulred to develop an integrated plan. I___ I d. If plan review reveals additional participants, revise the list of potential participants generated In STEP I, II e. Go on to STEP 4, INPUSTBT CASK STUDIES One group 'piggybacked* haxardous aterials response in an existing and workable natural disaster plan for traffic control, evacuation and shelter. The Federal Govarnaent requires coaaunltles around nuclear power plants to have detailed coaaunity eaergency response plans. If there Is a nuclear facility nearby. Integration of haxardous asterials Into the existing coaaunity plan should reduce the overall planning workload. One group based their proactive, broadbased efforts on the founda tion provided by an 1ndust r1a 1 utual aid organisation that shared equipaent and resources. Coast Guard and EPA Response Teaa plans can be Integrated Into the coaaunity plan when these resources are readily available. One city's 13 hospitals already had a aass casualty plan. However, In dustrial aedical resources (doc tors, protocols, antidotes) were not included until coaaunity-wtde haxardous aaterials planning was done. In one state, four separate groups were charged with haxardous aterials eaergency responsibl 11ty by the legislature and state law had to be changed to clarify roles. In this case, a consulting teaa froa three of the groups was established as a coeproalse, with the fourth group agreeing that their role was subordinate to the consultIng teaa. BOR 007624 TABLE 2 EMERGENCY RESPONSE PLANNING ELEMENTS These planning elements can be used for two purposes: o Each participant can review his or her existing plan to determine where work is needed relative to a coordinated response, o The Coordinating Group can use this to review any existing community plan for improvements or as a framework to develop a new integrated community plan where one does not exist. Review each item and evaluate its status in accordance with the key provided below. 1. Organizational Responsibilities I____ I a. Identify key participants and describe the role of each b. Identify by title the person in charge of emergency response e* Define relationships among key participants including who takes the lead for which actions d. Describe organizations outside the community that can be called upon for additional assistance I____ I e. Describe how control passes from first responders to the person in charge of overall emergency response I____ I f. Define the authority/responsibility interfaces between government and industry 2. Risk Evaluation II a. Identify the types and locations of hazards the community can face I____I b. Identify zones of impact and number of people at risk I____ I c. Classify severity of impact in accordance with the level of emergency response that will be needed 3. Notification Procedures and Communications Systems I____I a. Identify 24-hour notification means to first responders I____ I b, identify 24-hour notification means to officials who can provide direction and control to the response effort and who can authorize evacuation I____ I c. Describe communications systems and redundancy KEY: A - Acceptable B - Minimal work needed C - Substantial work needed N - Not applicable -25- BOR 007625 d. Describe the mutually agreed format and content for initial notification messages (to eliminate misunderstandings) e. Describe means for emergency responders to call for additional assistance f. Describe the means for notifying the public and identify, by title, the person responsible for notifying the public g. Describe the standard, pre-planned message formats and signals available for notifying the public Emergency Equipment and Facilities a. Identify command posts for response groups b. Describe facilities available including office space, communications, emergency supplies c. List the emergency equipment available at the industrial facilities, police, fire, public works, health and disaster preparedness departments d. Describe the interface with medical facilities including current disaster plans, first aid stations, hospitals, clinics, ambulance services e. Describe hazardous material monitoring equipment availabl f. List protective equipment (respirators, protective clothing, etc.) available g. List the written agreements that exist for mutual aid, specialized assistance, etc. Assessment Capabilities a. Identify who is responsible for determining potential or actual extent of hazard for each type of emergency (natural, chemical, etc.) b. Describe the procedures to be used to assess the extent of hazard c. Describe the capabilities of participants on assessment teams d. Describe the monitoring equipment available to assess the hazard e. Identify experienced personnel resources that may be called upon to augment regular staff B0 007626 26-  />?- v4.^* % 6. Protective Action Procedures 11 a. Identify by title the person who can authorize evacuation or sheltering 11 b. Describe the procedure to be used to determine if protective actions are required 11 c. Identify the group(s) responsible for conducting evacuation including notification, transport, traffic control, access control and verification of evacuation 11 d. Describe the arrangements for special facilities, (i.e., schools, nursing homes, handicapped, etc.) 11 e. Describe the arrangements in place for reception centers/shelters for evacuees 11 f. Describe the method for determining when protective actions are no longer needed 7. Public Education and Information 11 a. Identify by title the principal spokesperson for each key group who will communicate with the media and the public during an emergency 11 b. Describe the method for disseminating information to the media and public during an emergency including points of contact and briefing locations 1____ 1 c. Describe the public education and community awareness program to be conducted periodically 8. Post-emerqencv Procedures 1____ 1 a. Identify by title the person responsible for determining that the emergency is over and for authorizing re-entry 11 b. Describe the method to be used to declare that the emergency is over 11 c. Describe procedures to be used to return to normal including responsibility for clean-up 11 d. Describe methods to continue monitoring an affected area 11 e. Describe the method for investigating and documenting the emergency and evaluating the response 9. Traininq and Drills 1____ 1 a. Identify the key participants who must be trained -27- bOR 007627 1____ 1 b. Identify by title the person in each group responsible for training 11 11 c. Describe annual training programs d. Describe the drill schedule .including aspects requiring periodic drills 11 e. Describe the training available to first responders in the use of protective equipment 11 f. Describe how the plan is tested periodically 1i g. Describe frequency and extent of communications tests 11 h. Describe frequency and extent of public notification tests, and evaluation of its effectiveness 11 i. Describe the frequency and extent of training and update briefings on chemical hazards for first responders 10. Program Maintenance 11 Identify by title the person responsible within each group for maintaining an updated plan 11 b. Describe the method for an annual review and revision of the plan 11 c. Describe the method for incorporating lessons learned from drills and tests into the plan BOR 007628 -28 TABLE 3 EMERGENCY RESPONSE PLAN EVALUATION MATRIX* KEY: A - Acceptable B - Minimal work needed c - Substantial work needed N - Not applicable *TABLE 2 presents detailed information for evaluating planning elements. APPENDIX 2 presents summaries of local/plant emergency plans. each of the interrelated listed state/ BOR 007629 TABLE 4 EXAMPLE OF A COMPLETED EVALUATION MATRIX* KEY: A - Acceptable B - Minimal work needed c - Substantial work needed N - Not applicable TABLE 2 presents detailed information for evaluating planning elements. APPENDIX 2 presents summaries of local/plant emergency plans. each of the interrelated listed state/ -30 BoR 007630 STEP * response tasks which are not covered___ bjr existing plana. The review In Step 3 should determine 1C all reasonable risks have been addressed. If not, then additional tasks necessary to complete the plan need to be identified. This step requires a thorough definition of what must be done, with broadbased input. COHHUHm EMERGENCY PLAH IHPLEHEHTATIOH CHECKLIST Follow these suggested actions to complete STEP <i II a. Using the results of STEP 1, prepare a list for each participant of missing elements or required tasks not covered (using TABU 2 on p. 25 as the guideline). I___ I b. Determine if the missing elements are Important to the function of that participant (e.g., police department may nqt need to have air monitorlng equipment). I____I c. In the context of an Integrated response, identify and list required tanka which are not being covered by any group. I d. Go to STEP 5. INDUSTRY CASE STUDIES The moat common response tasks/ equipment not covered In existing plans include* o overall command authority o communications equipment which can participants reach all o specialised haxard monit oring and associated training o alerting the public and coordinating evacuation BOR 007631- STEP 5 Match these tasks to the resources available from the identified participants. Each defined task should be assigned to the par ticipant who can best address that aspect. Assignments should be trade based on authority, jurisdiction, expertise or resources. COHWHITT EHERGBHCV PLAN IMPLEMENTATION CHECKLIST follow these suggested actions to complete STEP 5i || a. Evaluate each of the unasslgned tasks from STEP I separately by reviewing the list of participants from STEP 1 to determine the best likely resource available to complete the task. |___ | b. Discuss the task with the identified participant to determine willingness to participate, availability of resources, and the existence of institutional roadblocks preventing use of resources. I| c. Work out the details of integrating that partici pant to complete that task in the context of the community plan. | d. During review meetings asssss the benefits and problems resulting from assigning that task to that participant. f___ | e. Determine if any new problems, unasslgned tasks or resource constraints will result from that assignment. If so, include these in the resolution process for new assignments. t f. Monitor each task separately to assure timely resolution. || g. Go on to STEP 6. INDUSTRY CASE STUDIES One planning group recognized that police resources were scarce and used volunteer firefighters for traffic and access control. Another group established a multi agency "command post" to resolve questions of "who's in charge". Industry has often been called upon to provide equipment and training for hazardous air monitoring. Specialized firefighting equipment may also be necessary. Communication resource problems may require sharing of radio networks and equipment. In one community, communication to the media was recognized aa a means to reach large numbers of people quickly and procedures were estab lished to use tone act 1va ted non 1tors on an emergency frequency to alert and update radio and TV sta tions directly. These monitors are being purchased by the individual stations at no cost to the community. BOR 007632 # STEP 6 Hake changes necessary to improve existing plans, integrate them Into an overall COB" aunitv plan and gain agreeient. Couplet Ion of STEPS 4 and .5 should eliminate the resource-related probleas. Integrating all plans Into the cob- aunity plan will reveal probleas with overlap ping responsibilities and coaplicated inter faces. COMMUNITY EMERGENCY PLAN IMPLEMENTATION CHECKLIST Follow these suggested actions to coaplete STEP 6 I___ t a. Prepare a draft of the Integrated plan using foraat acceptable to the lead governaent agencies. I____I b. Review the plan against the planning sleaanta In TABLE 1 (p. 25) to assure conpletenaas. I____I c. Conduct a tabletop role-playing ererctse to test the plan (1.e., key participants should sit around a table and describe how they would respond and Interact for various emergency scenarios). II d. Identify plan weaknesses and repeat STBP 4 and STEP 5. If necessary, to resolve these problems. I____I a. Assure that the integrated community plan Is consistent with the state disaster preparedness plan and chemlcal/utlltty/industrial plans. APPEN DIX 1 (p. 43) provides summaries describing the interrelationships among the chemical plant, com munity and state plans. I____I f. Revise the draft plan as often as necessary until all deficiencies are eliminated and aembera of the Coordinating Croup agree on the approach. II g. Go on to STBP T. INDUSTRY CASE STUDIES ley concepts at this step are 'keep It staple* and *coaproalse*. Successful plana have bean brief, auppleaented with appendices where detailed inforaatlon Is necessary. Successful plana have Included the following coaaunlty need: generally based on - Telephone roster - Action guide/checklist Resource/capabllltles list with agreement to share A coordinating plan with ac tion checklist for field use Comprehensive response plsne are often burdensoan due to their depth of detail and tack of flexibility. One such plan developed for a nuc lear power station constituted five 3-ring binders with unwieldy de tail. However, another nuclear power station plan was distilled into a few pages for general train ing and execution. One community that was having dif ficulty gaining agreement assembled their chief public and private officials to develop a 'strategy* rather than resolve conflict. The resultant 'strategy* was to assem ble a high level planning team (Deputy Chiefs, Assistant Direc tors, Assistant Plant Managers, etc.) and assign them full time to the task. The team aet at a train ing academy conference room and deve loped an acceptable plan In five 9-hour days. This was an ex treme measure that worked. BOR 007633 STEP 1 Commit the integrated community plan to writ ing and obtain approval* frog local governments. Once agreement on the Integrated plan has been reached, the [inal plan should be documented either by revising an existing community plan or preparing one where It doesn't exist. Approvals from governments must be obtained. local then COHHUHITY EHBBGEHCY PLAH IHPLBHEHTATIOH CHECKLIST Follow these suggested actions to complete STEP 7; t. a. Using a small group of preparers, commit the plan to Its final writing. I____t b. Begin arrangements for written sgreements among participants where necessary (mutual aid, notification formats, use of media notification outlets such ss Emergency Broadcast System 1BBSt, specialised response personnel and equipment). I____| c. Prepare a standard presentation to make to those officials where approval Is needed to implement the plan. I____I d. . Hake presentations, hold meetings and review sessions and obtain signature approval of local sleeted officials in all appropriate Jurisdictions. Go to STEP B. IHDUSTBY CASE STUDIES The key organisers for obtaining approval will vary from community to community. In our study cases these have beeni o A fire chief o A state senator o A plant manager A high level `champion* of the plan util expedite community government approvals. Written agreements are often neces sary when private companies are expected to provide emergency as sistance such as technical exper tise or specialised equipment. BOR 007634 STEP e Educate participating groups about the inte grated plan and assure that all emergency re sponders are trained. Coemunlty Involvement la Important throughout the planning process. However, by the time this step arrives, the coordinating group should have a definite plan for presenta tions. Such present ations should stress the importance of training for emergency responders. COHHUHITI BHBBCBUCT PLAN IHPLEHBHTATIOH CHECKLIST Follow these suggested actions to complete STEP Bi I___ I a. Compile a list of participating agencies or groups who will need to know more about the Integrated plan. I___ I b. Hake presentations to these agencies and groups to explain the plan, their role and the type of training they should institute. I___ I c. Identify who must be trained and prepare a schedule. I___ I d. Develop and implement classroom training where necessary. I___ I e. Complete field drills for hands-on training In monitoring, use of communications, traffic control, etc. I___ I f. Complete comprehensive tabletop exercises to train leaders In coordination and communications among participants. I___ I t g. Prepare a method for evaluating the effectiveness of training and monitor all training activities periodically. tI h. Go to STOP 9. IHDUSTRlf CASE STUDIES One county planning team Included a half day seminar to educate and train mayors, commissioners and department heads on their roles, Including media relations. Princi pal spokespersons for the company and all key response agencies were assigned and trained. One state planning group used training In the plan as an oppor tunity to "cross train" agencies, so that, as an example, the envi ronmental resources department was trained by firefighters In the ubs of protective clothing and breath ing apparatus, while the fire fighters were trained by the environmental and industry experts on airborne contaminant monitoring strategies and practices on con tainment and diversion diking. An extra benefit was a shared aware ness of the value of both functions. Another community followed their planned communication and training with simulation exercises conducted by the state fire training agency and a local community college. The exercise was covered by the and la, who also participated, as a demon stration that the community, inclu ding industry, was doing something to Improve preparedness. (hie community established "speaking teams" of public and private offic ials, who visited public group meetings, schools, the Chamber of Commerce, and others to discuss progress. BOR 007635 STEP 9 Eatabltah procedures for periodic testing, review and updating of the Plan. Emergency responders should test their plans on a regular basis. Initial testing should be done internally be fore 'going public' with the program. Test drills should be desig ned to uncover defici encies In coordination among groups and train ing. Any deficiencies should be corrected in the plan or the train ing program. COMMUNITY EMERGENCY PLAN IMPLEMENTATION CHECKLIST Follow these suggested actions to complete STEP 9 I____| a. Designate a committee to prepare a test drill scen ario. Members should not be part of the emergency response group. I b. Prepare a written scenario which identifies object ives of the drill, components of the plan to ba tested, expected participants, sequence of events, simulated haiard levels. TABLE 5 (p. 17) presents an example outline for emergency plan test drill scenario. |____| c. Designate a group of non-participating observers to evaluate the test drill using prepared evaluation checklists. I____I d. Using appropriate local officials, media, and other outlets, alert the public and all participants that a test of the plan is scheduled. I____| e. Conduct the test using the prepared scenario. |____) f. Immediately after the test, hold critique sessions to present the results of the evaluations. |____| g. Assign appropriate parties to correct deficiencies. 1____I h. Revise the Integrated plan to correct deficiencies. 1. Prepare a procedure for a formal, annual review of the plan to assure that it is kept current. 11 Go to STEP IB, BOR 007636 INDUSTRY CASE STUDIES Nothing can replace a full scale emergency response drill as a means of identifying further Improvement areas. Preplanning the drill, pre paring a drill scenario, and its evaluation process are critical elements to a successful test. One community conducted media work shops, two days before the drills, to explain the drill, allow the media to develop a work schedule to cover the drill, and assure that their needs were met. This in cluded recommendations on where to obtain good action-oriented vis uals, background statements, and drill scenario details. Radio sta tions required regular updates from the scene. A mobile telephone at the scene was patched to all the interested radio stations. Several communities have used elec ted public officials, who were in volved in the planning, to serve as spokespersons. They are generally skilled at dealing with the media and they represent the publ ic in terests. It also establishes them as part of the response effort. However, to assure that key points are reinforced, spokespersons should be provided with a 'Key Talking Points* outline, attesting the co operation of all involved and the drill's purpose of identifying fur ther areas of improvement. Interagency cooperation has been a key focus In many drills. For example, designating one fire en gine to provide decontamination services to paramedics and ambu lance crews, plant physicians re sponse and support at designated emergency rooms, industrial response team support of public agencies. Coast Guard spill control activi ties, simulated community alerting/ evacuation/return, etc. TABLE 5 EXAMPLE OUTLINE FOR EMERGENCY PLAN TEST DRILL SCENARIO Introduction Include a schedule, list of participants and purpose of the test. Objectives and Extent of Testing State, in detail, the objectives that the test was designed to evaluate. Define what parts of the emergency response team will be tested and what parts will simulate actions. Guidelines 3.1 Safety precautions General precautions necessary to protect the public, emergency responders and plant personnel. 3.2 Controller/Evaluator Instructions Information to assist controllers and evaluators in performing their functions. 3.3 Instructions to Participants Information'to assist participants in performing their functions. 3.4 Performance Evaluation Standards Evaluation criteria and a standard grading system. Scenario 4.1 Initial Conditions Set the stage for pre-emergency conditions. 4.2 Narrative Summary A brief description of the sequence of events leading to the emergency and continuing to the end of the test. 4.3 Major Sequence of Events A detailed timetable of when events will occur. Appendices Various additional information including cue cards, controller/evaluator guides, plant data, meteorological data, hazards data (air contaminants, etc.), evaluation forms. BOR 007637 ( STEP 10 Educate the qeneral comunity about the inteqtated plan. Opportunities for coir- unity involvement and public education Bhould be pursued at all the previous steps in the planning process. A critical element in ef- fective community eaer- gency response is edu- eating the public on what they should do dur- ing an emergency, where to turn for additional information, and how and when to evacuate, if necessary* 1 u GO 1 r \ mw - COMMUNITY EMERGENCY PLAN IMPLEMENTATION CHECKLIST Follow these suqqested actions to complete STEP 10: 11 a* Prepare a standard emergency response brochure for distribution to all residents within the potent1ally affected area. APPENDIX 3 (p. ill describes the development and use of one such brochure. )__ 1 b. Distribute the brochure by most appropriate means (nail, door-to-door deliveries, etc.). 11 c. Prepare a standard media tit which identifies local government and chemical plant information contacts. provides background on the plant and the integrated plan and explains where to get information during an titcgancy* 1__ 1 d. Conduct a media briefing/training session to present the kit and explain what is expected of the media during an emergency. 11 e* Inpl extent other elements of a publ lc education Community Involvement. Possibilities includei o a speaker's bureau for local civic groups. school assemblies, etc. o a haxardoua materials advisory committee (see APPENDIX 4 on p. 49 for a summary of such a committee) o media coverage of drills, training activities. presentations to local officials, etc. o plant tours o special symposium on chemical Industry, its benefits and risks (see APPENDIX S on p. SO) f. Periodically review the statue of public education and community awareness programs. --------------- INDUSTRY CASE STUDIES More than one community has established a HESAC, Media Emergency Services Advisory Council, as an ongoing forum to address Issues and Improve audla relations In general. In a cooperative environment, one company embraced the media as partnera In eanrgency response planning. resulting in higher quality coauxunlcations during emergencies and lmproved coverage otherwise. This may not be possible at all locations. Several communities have used fire service and industrial personnel to instruct a course on 'Media Safety at the Emergency Scene*, to enhance their safety, describe operational procedures and jargon and establish relationships. This type of course must have the support of assignment editors and be repetitive since re porter turnover la high. Plant newspaper articles are (spottant to assure that industrial employees are aware of and support preparedness efforts. \ BOR 007638 Community Involvement Community involvement activities have already been described at pertinent points in the sections titled How to Get Started and Community Emergency Plan Implementation Steps. However, the concept of community involvement may be relatively new to some plant managers and some additional guidance may be useful. The COMMUNITY AWARENESS section discusses the chemical industry's commitment to providing information on chemical hazards to the public. As community awareness increases about local chemical hazards, it is essential that a like awareness of emergency response planning activities and risk management increases as well. The process of developing an integrated community emergency response plan in and of itself will promote community involvement because some leading members of the community will be participants in the process. However, it is incumbent on the plant manager to maintain a sensitivity to community relations throughout the process. The plant manager should identify opportunities to discuss the integrated emergency response plan and the CAER program and follow through at each step of the implementation process. Suggested activities are described below. Most of these have already been included in either the ten step implementation process or the suggestions on how to get started. They are summarized here to emphasize their importance. Additional suggestions are contained in APPENDIX 5 (p. 50), which is a summary of the Louisiana Chemical Association's Community Awareness Program. 1. Prepare a written community relations plan with goals and a schedule. Begin by compiling a list of local organizations, groups and individuals who should be directly involved in emergency response planning or kept current on its status. Decide if the company needs outside assistance in community relations efforts. 2. Keep plant employees aware of new developments in emergency planning, both through training and periodic announcements in the plant newspaper or on bulletin boards. 3. Develop a standard briefing paper describing the plant, its place in the local economy, the status of its emergency plan and the plant's involvement in integrated community emergency response planning. 4. Identify opportunities to meet with local civic, business and public interest groups to relate the status of emergency planning. 5. Develop contacts within the various media and provide background information and news releases as appropriate. -39- BOR 007639 Determine if a local hazardous material advisory group would be useful to local government officials and first responders. Provide technical expertise to this group, appendix 4 (p. 49) presents a summary of such a group. Arrange for the Coordinating Group to have available a standard presentation on the integrated community emergency response plan. This will be useful for government leaders to use at public meetings and other functions. The Coordinating Group (and the plant manager) should also have available a media kit to use during interviews or media briefings. BOR 007640 APPENDIX 1 TYPICAL COMPONENTS OF A CHEMICAL PLANT EMERGENCY RESPONSE PLAN 1. Plant Emergency Organization - Designated person in charge/alternates - Functions of each key individual and group - Telephone numbers (office and home) for key people/alternates 2. Plant Risk Evaluation Quantity of hazardous materials - Location of hazardous materials Properties of each (MSDS sheets) - Location of isolation valves Special fire fighting procedures (if any) - Special handling requirements 3. Area Risk Evaluation (other industries near plant) - Properties of hazardous materials at nearby plants - Contacts (names, telephone numbers) at other sites - Established procedures for notification of chemical releases at other sites in area 4. Notification Procedures and Communications Systems - Alarm systems - Communication equipment (radios, hot lines, etc.) o Emergency organization o Plant management o Local officials and response agencies o Neighboring industry o Nearby residents - Names and telephone number (with alternates) list - Designated person for media contacts - Procedure for notifying families of injured employees Central reporting office 5. Emergency Equipment and Facilities - Fire fighting equipment Emergency medical supplies - Toxic gas detectors (where needed) - Wind direction/speed indicators - Self-contained breathing apparatus Protective clothing 6. Procedure for returning to normal operations Interface and lines of communications with offsite officials BOR 007641 -41- TYPICAL COMPONENTS OP A CHEMICAL PLANT EMERGENCY RESPONSE PLAN (continued) 7. Training and Drills - Knowledge of chemicals (properties, toxicity, etc.) - Procedures for reporting emergencies - Knowledge of alarm systems - Location of fire fighting equipment Use of fire fighting equipment Use of protective equipment (respirators, breathing air, clothing, etc.) - Decontamination procedures for protective clothing and equipment Evacuation procedures - Prequent, documented simulated emergencies 8. Regular tests of emergency organization/procedures - Simulated emergencies - Documented, frequent alarm system checks - Prequent tests of fire fighting equipment - Evacuation practice - On-going emergency preparedness committee 9. Plan Updates - Annual or more frequent if needed - Reflect results of drills and tests 10. Emergency Response Procedures - Communications Evacuation - Medical (include handling of multiple injuries) Special procedures for toxic gas releases (chlorine, etc.) - Hurricane procedures (coastal areas only) Utility failure procedures - Individual unit emergency procedures - Bomb threat procedures 11. Detailed operating Manuals (for each process unit and utility system) - Start-up/Shut-down emergency procedures Analysis of potential incidents Emergency response and action to be taken for each incident -42- BOR 007642 APPENDIX 2 HIGHLIGHTS OP INTERRELATED PLANT, COMMUNITY AND STATE PLANS The following sections 2(A), 2(B) and 2(0 present highlights of plant, community and state plans which have been developed to integrate community response with industry response. APPENDIX 2 (A) HIGHLIGHTS OF A LARGE CHEMICAL MANUFACTURING SITE EMERGENCY PLAN 1. The Site Emergency Plan dictates that each unit (plant, lab, shop, ffice area) on the site have an emergency plan for dealing with emergencies that initiate within the unit and for those that initiate elsewhere. All types of emergencies must be considered, e.g., chemical gas release or spill, fire or explosion, weather, flood, radiological incident, acts of terrorism, sabotage or transportation incident. The site and unit emergency plans all have response matrices, or decision-trees, based on incident type and magnitude. Function and task responsibilities are assigned, and coordination and authorities defined for the various response levels. 2. Each unit and the site itself has an extensive "on-call* system in place. On a rotating basis, unit and site line management and staff groups have a person "on-call". This total call list is maintained current at each unit and the site emergency control center. The n-call person is available 24 hours a day by telephone, telephone page and two-way radio. Many utilize 4-wheel drive company vehicles while on-call. This system provides rapid notification and response during any incident by key management and staff functions. Unit personnel respond to the scene and bring the situation under control while site personnel control activities for the remainder of the site and coordinate with local authorities. All response functions have representation in the "call-system", including, but not limited to: a. Management/Supervision b. Emergency Service (Sec., Fire c. Industrial Hygiene d. Environmental Services e. Safety f. Utilities Distribution g. Public Relations h. Legal i. Distribution & Traffic j. Maintenance Crafts 3. Notification plans and equipment have been automated to assure rapid and complete notification. All site phones can be activated at once, or in a selected area, to receive a pre-recorded alert message from the emergency control center. All sensitive or high density institutions near the site fenceline also have an automatic telephone alert message mechanism controlled by the emergency control center dispatcher. This includ s schools, other businesses, retirement homes, apartment complexes, etc. -43- BR 007643 Additionally, direct link hot-line telephones are installed from the site emergency control center to local law enforcement and fire dispatch control centers. Also, a computer plume modeling system is installed at the site emergency control center with duplicate display screens at local law enforcement and control center locations. 4. If a site incident will or does impact the community, several key site personnel respond to the local government emergency operations center to act as advisors and liaison. These include line management, safety/ security, public relations and industrial hygiene personnel. Addition ally, environmental service personnel respond in the community to gather data on concentration and location of the hazardous material. These personnel are in contact with each other and the site control center by radio. -44- BOR 007644 APPENDIX 2 (B) COUNTY AND CITY OF MIDLAND EMERGENCY PLAN HIGHLIGHTS 1. in Michigan/ overall control during a disaster rests with the County Government. While cities or municipalities with a population over 10,000 may establish an emergency plan of their own, all smaller units are covered by the county plan. In an actual emergency, cities operating under their own plan revert to the county plan if the disaster extends beyond the city's boundary. Finally, state government gets involved only on request of the local government and the local government would still retain control. State involvement is as a technical and material resource. in this case, the city and county each have an established plan that covers a broad range of disasters. 2. Coordination and similarity between the city and county plan is evident throughout both. This aids in transition as the extent of the emergency changes in that familiarity with one plan breeds familiarity with the other. a. Each is composed of a basic plan with annexes. The basic plan details authority and activation of the plan, as well as a synopsis of the content of each annex. b. The annexes of each plan are actually the detailed emergency plan prepared by each responding agency or function. The annexes are titled, numbered, structured, and arranged in the same order in both plans. c. Primary responsibilities are assigned to the corresponding agency in each jurisdiction. For example, initial notification of emergency services directors and warning the community are done by the county sheriff and city police agencies. d. Telephone fan-out list, lists of available resources and prepared lists of response activities for various types and magnitudes of possible disasters are used extensively in the annexes. e. Each plan contains the other jurisdiction's entire plan as an appendix to their own plan. 3. Emergency response is coordinated between the city and county in several ways. a. There is a common radio frequency used by both of their law enforcement agencies. b. The emergency operations center for both is in the same location. c. There are many mutual aid procedures and use of resources across jurisdictions. For example, city fire conducts a fan-out telephone calling for both; the City uses the County Health Department and County shelter Services; law enforcement agencies notify each other of emergencies in their area as part of their fan-out. -45- BOR 007645 4. Both plans spell out responsibility for periodic hypothetical exercises, review and updating of the plan. 5. Response tasks are assigned by a matrix. Agencies are listed across the top with tasks down the side. A "p* or an "s* under the agency indicates that the task is a primary or secondary (assistance) function of that agency. 6. Both plans include procedures and responsibilities for a *return-tonormalcy" as the emergency winds down, with specific tasks spelled out. Some functions have primary duties only during this phase, such as damage assessment (Building Inspector). -46- BOR 007646 APPENDIX 2 (C) MICHIGAN HAZARDOUS MATERIALS RESPONSE PLAN HIGHLIGHTS This plan is, in reality, an annex to the State of Michigan Emergency Preparedness Plan. Thus, although it deals only with hazardous materials, it has been coordinated with all other types of disasters. This reflects a recognition that hazardous materials are only one type of disaster that local and state agencies must prepare for in a coordinated manner. The role, responsibilities and authority of the various state and local agencies are clearly spelled out. Local authorities maintain control and responsibility at the scene while state agencies provide technical assistance and additional resources, state agencies assume control only at the request of local authorities or the declaration of a State of Disaster by the Governor, as requested by local authorities. Notification of the various state and local agencies is handled in a consistent pre-planned manner by the appropriate level of law enforcement. Each local or state agency then has its own fan-out notification list and response procedures. The level of response or involvement by any given agency, either state or local, is determined by the agency itself through a pre-planned response matrix or decision-tree based on the type and magnitude of the disaster. This method has proved very efficient in providing rapid effective response, since: a. Law enforcement notifies a single representative at various agencies and concerns itself with primary first response and securing the scene. b. Various response agencies then conduct fan-out notification and respond according to their function and resources in a pre-planned manner. Thus, notification and response are rapid and not determined by one individual or agency that may be fallible. This plan recognizes and uses the resources of the industrial sector extensively. CHEMTREC and chemical companies in the state with expertise in handling hazardous materials are listed with prime phone contacts identified. Broad categories of hazardous materials have been assign d by region and company for response and aid purposes. (A voluntary cooperative effort by industry with government). An extensive training program for transportation emergencies is detailed in the plan. There are four levels of training, from 'first responder* through 'special response teams* and 'industry response teams'. Industry provides much of this training voluntarily to local police, fire and other industry personnel. BOR 007647 APPENDIX 3 MOLTI COUNTY PLANNING AND PUBLIC EDUCATION IN NEW YORK STATE BACKGROUND The counties of Rockland, Westchester, Orange and Putnam in New York State have completed an integrated planning process. The area of about one million people is located approximately 20 miles north of New York City. it is located along the Hudson River and includes transportation links for the Northeast, serving both as an access by the Hudson River for ships and barges, and as a major highway link. There are mixed industrial/commercial facilities with a heavy residential community. In the center of the area, on the Hudson River, is the Indian Point Nuclear Power Plant operated by Con Ed for over 12 years. PROGRAM Following a four year effort a plan was tested and implemented in October 1984. A booklet describing the plan was made available to all households within the planning area. Following is a summary of key points incorporated in the booklet: 1. Special sirens have been installed to alert the community of an emergency. This signal informs the citizen to tune in the emergency broadcast services (BBS) on TV/Radio on 28 area stations for emergency instruction. 2. Emergency instructions, based on the hazard (Radiation, Hazardous Materials, Natural Disasters) are given over the media. 3. Evacuation plans and public reception areas are highlighted, in map form. 4. Evacuation routes and emergency transportation systems are established. 5. Institutional procedures, hospitals, schools, special facilities are included in the plan. 6. A procedure is established for disabled people. 7. An educational booklet is available to every household in the planning area. BOR 007648 APPENDIX 4 MEMPHIS-SHELBY COUNTY, TENNESSEE HAZARDOUS MATERIALS ADVISORY COUNCIL A voluntary, cooperative, multi-agency effort to enhance emergency prepared nessand, thereby, public protection was developed in the Memphis-Shelby County, Tennessee area in the early 1980's. Serious hazardous materials incidents, public apprehension and adverse media attention coupled with a desire on the part of response agencies and industry to improve response to hazardous materials emergencies led to formation of a broad based Task Force which evaluated risks to the community and suggested improvement strategies. A keyimprovementstrategy was the formation of an on-going Hazardous Materials Advisory Council (HMAC). The HMAC represents a broad community base from industry, emergency response agencies and elected governmental leaders. The council's purpose is to: 1. Provide a forum to define and address community hazardous materials risks and concerns; 2. Suggest strategies to the appropriate groups to reduce risks and concerns; 3. Maximize the useof available federal, state, local and industry resources during hazardous materials emergencies; 4. Promote a greater shared awareness of problems and resources; expand the use of mutual aid agreements; encourage greater inter-agency, inter-jurisdictional, and industry involvement and cooperation; sponsor community-wide drills; and 5. Encourage a higher level of preparedness and public protection in general. The HMAC has achieved a high level of success with this voluntary, but focused, approach; the management of hazardous materials emergencies has measurably improved. Ancillary benefits include: the development of positive working relationships that reduce conflict among industry, regulatory and political spokespersons; the development of a public awareness that real emergency response needs are being met; and concerns being channeled into the appropriate resource of the council. -49- BOR 007649 APPENDIX 5 LOUISIANA CHEMICAL ASSOCIATION COMMUNITY AWARENESS PROJECT SUMMARY CHEMICAL OPERATIONS AWARENESS SEMINAR Host onsite familiarization seminars focused on safety and emergency procedures aimed at demystifying chemical operations in the eyes of public officials, community leaders, and the media. Seminar agenda will include segments on: accident prevention, design and engineering safeguards, emergency response in-plant, and community protection offsite. Seminars will be conducted separately for the media and officials to prevent newspeople from covering as a media event for the public officials. BOOKLET - "PROTECTING PEOPLE AND THE ENVIRONMENT* Develop a concise, readable booklet to familiarize the general public with chemical industry operations and procedures that help protect them from chemical hazards. Approximately 30-page booklet will include all aspects of safety and emergency procedures of concern to the public, including: occupational safety, security, design features, regulatory guidelines, transportation, etc. Should be a general purpose booklet, written in laymen's terms. CHEMICAL EMERGENCY PREPAREDNESS SYMPOSIUM Host a high-visibility symposium to make community leaders and public aware of emergency procedures and precautions already in place to prevent and mitigate chemically related accidents, and discuss needs for the future. Key audience will be local public officials, community leaders, environmentalists, health care providers, emergency responders, and media, would like to attract about 500 participants, in conjunction with the symposium, an exhibition area would be set up to display emergency response equipment and resources. PROGRAM EVALUATION AND MONITORING Effectiveness of Chemical Operations Awareness seminars would be measured by opinion surveys. Evaluation would involve conducting baseline and follow-up opinion surveys of media, officials, and community leaders. Both surveys would focus on opinions/perceptions of chemical industry safety, emergency response ability and effectiveness, and community protection. -50- BOR 007650 APPENDIX 6 SELECTED HEADING LIST D.S. Federal Emergency Management Agency, Planning Guide and Checklist for Hazardous Materials Contingency Plan/ FEMA-10, July 1981. 1984 Hazardous Material Spills Conference Proceedings, Government Institutes, Inc., April 1984. Student, P.J., ed.. Emergency Handling of Hazardous Materials in Surface Transportation. Bureau of Explosives, Association of American Railroads, Washington, D.C., 1981. U.S. Department of Transportation, Hazardous Materials Emergency Response Guidebook. DOT-P-5800.2. Research and Special Programs Administration, Materials Transportation Bureau, 1980. U.S. Environmental Protection Agency, National Oil and Hazardous Substances Contingency Plan. Federal Register, July 16, 1982. Quarantelli, E.L., Sociobehavorial Responses to Chemical Hazards: Preparations For and Responses to Acute Chemical Emergencies at the Local Community Level, Book and Monograph Series #17, Disaster Research Center, University of Delaware, 1984 (especially Chapters 10-15). BOR 007651