ML19308C321
| ML19308C321 | |
| Person / Time | |
|---|---|
| Site: | Crane  |
| Issue date: | 04/30/1977 |
| From: | GENERAL SERVICES ADMINISTRATION |
| To: | |
| Shared Package | |
| ML19308C322 | List: |
| References | |
| TASK-TF, TASK-TMR NUDOCS 8001220717 | |
| Download: ML19308C321 (50) | |
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Response
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(Interim Guidance )
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April 1977
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General Services Administration-fi kk Federal Preparedness Agency N
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r FEDERAL RESPONSE PLAN FOR PEACETIME NUCLEAR ElfERGENCIES (INTERIM GUIDANCE)
APitIL 1977 GENERAL SERVICES ADMINISTRATION FEDERAL PREPAREDNESS AGENCY l
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TA13LE OF CONTENTS L
Page PART I - GENERAL 1
A.
Introduction 1
13.
Authorities 3
l, C.
Purpose 4
D.
Scope 5
l PART II - POLICY AND PLANNING GUIDANCE 6
A.
Policy 6
H.
Assumptions 8
C.
Planning guidance 8
PART III - PLANNING RESPONSIBILITIES 11 A.
Introduction 11 H.
Description of peacetime nuclear emergency categories and status of existing plans 11 l
t 1.
General 11 2.
Category I incidents 12 3.
Category II incidents 15 4.
Category III incidents 17 5
Category IV conditions 19 C.
Operational response planning agencies (ORPAs) 20 l
l 1.
Concept 20 l
2.
Designation of operational response l
planning agencies 21 j
3.
International implications of peacetime i
nuclear emergencies 26 l
4.
Responsibilities of operational response planning agencies 26 D.
Federal support agency responsibilities 30 i
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Page Office of Telecommunications Policy 30 Department of State 30 Department of the Treasury 31 4
Department of Defense 32 Defense Civil Preparedness Agency 32 Department of Justice
'33 Federal Bureau of Investigation 34 3.
Department of the Interior 34 Department of Agriculture 35 Department of Commerce 35 j
National Oceanic and Atmospheric Administration 36 Maritime Administration 36 Department of Labor 37 Occupational Safety and IIcalth Administration 37 Department of IIcalth, Education, and Welfare 37 Department of Housing ~ and Urban Development 39 Department of Transportation 40 Civil Aeronautics Board 41 Interstate Commerce Commission 41 j
Tennessee Valley Authority 41 j
Federal Financial Supervisory Agencies 42 l
Environmental Protection Agency 42 Federal Power Commission 43
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General Services Administration 43 Securities and Exchange Commission 43 Veterans Administration 44-d Energy Research and Development Administration 44 i
Nuclear Regulatory Commission 45 United States Postal Service 46 National Aeronautics and Space Administration 46 j
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PART IV - PLANNING COORDINATION j
AND IMPLEMENTATION 47 A.
Introduction 47 II.
Operational response planning agency coordination.
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Supporting agency coordination 48 i
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Department of State 48 E.
Federal-State coordination 48 F.
Federal Preparedness Agency, GSA (FPA) 49 G.
Implementation 50 e
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l PART I GENERAL A.
Introduction. This document is issued pursuant to the authority vested in the Director of the Federal Preparedness Agency, and in conformity with responsibilities and functions assigned to him, by the provisions of Executive Order 11051, as amended, Executive Order 11490, as amended, Section 3 of Executive Order 11725, and related delegations of authority from the Administrator of General Se r vice s.
It provides, on an interim basis, policy and guidance for the development, review, and maintenance of Federal plans and capabilities for responding to any peacetime nuclear emergency to which the civil emergency preparedness provision of the above cited Executive orders apply.
Federal, State, and local governments, private industry, and other nongovernmental users have taken measures to prevent foreseeable accidents associated with the manufacture, transportation, storage, and use of radioactive materials and devices intended for civil and military use. Safety features are incorporated in each nuclear reactor to reduce the probability of accident and the risk of radiological contamination. Security safeguards in addition to safety features are built into every nuclear.wcapon to assure an extremely low probability of an accidental or unauthorized detonation.
The United States military nuclear weapons safety and security program is primarily the responsibility of the Department of Defense (DOD) and is participated in directly by the Energy.
Research and Development Administration (ERDA). The program l
ensures that each nuclear weapon is subjected to continuous and l
methodical inspection to assure that the system is safe and is being I
operated in consonance with prescribed operational safeguards. In addition, the DOD and ERDA have established comprehensive technical nuclear materials safeguards and safeguards procedures designed to prevent successful malevolent acts by any individual.
Moreover, emergency plans are in readiness for immediate resporise in the event that any such act occurs. As a matter of prudence.
however, this document provides for additional planning' lo respond l
cffectively in the event that a malevolent act occurs as a result of some unlikely combination of safeguards failures.
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Peacetime nucicar hazards to liven.tud property in the United States are not limited to sources originating within the United States but may be generated from sources outside its borders.
This was first officially recognized in 1971 when the United States of America and the Union of Soviet Socialist Republics entered 3
into an " Agreement on Measures to Reduce the Risk of Outbreak of Nuclear War," which provides for mutual and timely notification In the event of an unauthorized or accidental launch involving a possible detonation of a nuclear weapon. Accordingly, appropriate notification procedares have been instituted to implement that Ag reement. In addition, the proliferation of nuclear materials has increased the probability of the introduction of such materials into the United States from abroad.
Numerous plans have been developed for dealing with peacetime nucicar emergencies of various types and degrees of severity. In general,- they focus primarily on technical and emergency response measures related to health and safety. There is a need for the 4
development, in conformity with the provisions of Executive Order 11051, as amended, and Executive Order 11490, as amended, of additional plans for responding.to the other consequences that might l
result from a peacetime nuclear emergency more serious than those 4
that have occurred even though the probability that such an incident j
will occur is very low. This document is intended to provide guidance for the development of those plans and for bringing them together with existing plans into a compendium of plans comprising the Federal Response Plan for Peacetime Nuclear Emergencies (FRPPNE).
In its final form, the FRPPNE will consiot of this basic guidance document, the Federal operational response plans called for herein, and appropriate annexes--those having general applicability and.those pertaining to a specific operational response plan. Specific Federal plans will range from those of individual.
departments and agencies (c. g., plans for coping with localized emergencies by custodians of small amounts of radioactive materials), to plans prepared by more than one agency where a multiagency coordinated response is required to cope with the multiplicity of emergency conditions that might result from more
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serious peacetime nuclear emergencies. The set of plans, which together will c,onstitute the FRPPNE, will be ' divided into separate
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volumes to permit maximum flexibility in their use and to allow Federal agencies to have in their possession only the plans in which they ar e expected to be involved.
H.
Authoritie s.
This guidance is issued pursuant to the provisions of Executive Order 11051, as amended, Executive Order 11490, as amended, and Section 3 of Executive Order 11725. Section 101(a) of Executive Order 11051, as amended, specifically states that the Director, Office of Emergency Planning (Director, Federal Preparedness Agency (FPA), General Services Administration, under Section 3 of Executive Order 11725), shall: " Advise and assist the President in the coordination of and in the determination of policy for the emergency plans and preparedness assignments of the Federal departments and agencies.... designed to make possible at Federal, State and local levels the mobilization of the human, natural, and industrial resources of the Nation to meet all conditions of national emergency.... " Section 101(b) of that order states that the Director is ".... under the direction of the President,.... responsible for the preparation of nonmilitary plans and preparedness programs with respect to organization and functioning of the Federal Government under emergency conditions.... " Section 208(a) of that order provides that the Director ".... shall represent the President in working with State Governors to stimulate vigorous State and local participation in emergency preparedness measures," and Section 208(c) provides that the Director ".... shall assist the President in achieving a coordinated working relationship between the various elements of State governments and the Federal agencies to which specific emergency preparedness functions have been assigned pursuant to statute or Executive order. "
l Federal agencies shall develop peacetime nucicar emergency operational response plans under, and to the extent required by, the provisions of Executive Order 11051, as amended, Executive Order 11490, as amended, and Section 3 of Executive Order 11725.
Operations described in these plans shall be carried out under appropriate statutes, Executive orders, and administrative authorities pertaining to each agency. In addition, the following-listed statutes, when and to the extent appropriate, shall be used as authority for planning and/or response activity in relation to peacetime nucicar emergencies.
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1.
Atomic Energy Act of 1954, as amended.
2.
National Security Act of 1947, as amended.
3.
Energy Reorganization Act of 1974.
4.
Defense Production Act of 1950, as amended.
5.
Disaster Relief Act of 1974. *
(*It is possible that a peacetime nuclear emergency could necessitate a Federal response under the provisions of the Disaster Relief Act of 1974 (P.'L.' 93 288). Such a response would be contingent upon a Governor's finding that the situation "is of such severity and magnitude that effective response is beyond the capabilities of the State and the affected local governments and that Federal assistance is necessary. "
In response to the Governor's request, the President could declare that an emergency or a major disaster exists under the terms of that act thereby making Federal assistance under that act av 1ilabic. )
A document entitled " Analysis of the Legal Authority Currently Availabic to Support Federal Responses in Emergencies Contemplated by the FRPPNE," which describes additional statutory authorities that may possibly be relied upon, is included as Annex II.
C.
Purpose. This document is, to the extent authorized and required by Executive Order 11051, as amended, Executive Order 11490, as amended, and Section 3 of Executive Order 11725 designed to:
1.
Provide policy and planning guidance for the preparation of Federal and State operational response plans for peacetime nuclear emergencies; 2.
Facilitate a complete and coordinated Federal planning effort that will cover all peacetime nuclear emergencies; 3.
Provide the basis for compatibility between Federal and State plans related to peacetime nucicar emergencies; and 4
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Identify responsibility for implementing and coordinating the efforts of Federal agencies responding to peacetime nuclear emergencie s.
D.
Scope. This document, to the extent authoriz,ed and required by the provisions of Executive Order 11051, as amended, Executive Order 11490, as amended, and Section 3 of Executive Order 11725:
1.
Establishes the framework within which Federal preparedness planning shall be effected to provide a response for each potential peacetime nuclear emergency; 2.
Lists policy, planning guidelines, and assumptions applicabic to the Federal Response Plan for Peacetime Nuclear Emergencie s; 3.
Defines and discusses the various categories of peacetime nuclear emergencies; 4.
Identifics, for each of several categories of peacetime nuclear emergencies, the appropriate Federal department or agency to manage and integrate the one or more departmental efforts required in preparing the coordinated Federal plan for that peacetime nuclear emergency; 5.
Outlines the planning responsibilities of Federal departments and agencies for responding to peacetime nuclear emergencies; 6.
Discusses long-range recovery and rehabilitation in the event of a serious peacetime nuclear emergency; and 7.
Outlines the responsibilities of the Federal Preparedness Agency for coordination of peacetime nucicar emergency operational response planning.
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PART II POLICY.. AND PLANNING GUIDANCE A.
Policy.
1.
Federal agencies, as designated in Part III of this document, shall prepare operational response plans which provide adequate controls and organizational procedures and assure an appropriate Federal response for all categories of peacetime nhclear emergencies for which response plans are required under the provisions of Executive Order 11051, as amended, or Executive Order 11490, as amended. Plan (s) related to each category of emergency shall be interfaced and/or integrated, as is appropricte, under this basic planning guidance document as part of the FRPPNE.
2.
In developing their operational response plans, Federal agencies shall emphasize three classes of measures: those designed to prevent a peacetime nuclear emergency; those designed to control any peacetime nuclear emergency that has the potential for becoming more serious; and those needed to cope with the effects of the peacetime nuclear emergency.
3.
The FRPPNE shall, to the extent appropriate, combine existing operational response plans dealing with peacetime nuclear emergencies with operational response plans hereafter developed in accordance with this guidance.
4.
Planning shall be based on existing 1cgislative and executive -
authority to the maximum extent possible.
5.
Federal operational response plans shall fully recognize l
the authority and responsibility of State and loca1' governments to plan for and respond to peacetime nucicar emergencies.
6.
The use of existing organizational structures and coordinating mechanisms shall, under this guidance, be given priority consideration over the creation of any new organizational and coordinating arrangements in planning a response.to a peacetime nuc1 car emergency for Which preparedness planning is required 6
under the provisions of Executive Order 11051, as amended, and Executive Order 11490, as amended.
7.
Planning efforts for responding to an emergency involving a serious dispersal of radioactive contamination or a nuc1cer detonation in peacetime shall be directed not only toward physical survival, but also toward the preservation of the basic political, social, and economic systems and values of the affected area.
Consequently, every effort shall be made to:
Minimize, both in scope and duration, the restraints, a.
if any, that the exigencies of a dire peacetime nuclear emergency might necessitate with respect to the free exercise of Constitutional and other basic rights and liberties; b.
Preserve and/or reconstitute, as quickly as possible, representative Constitutional government; c.
Maintain _ law enforcement and judicial proceedings in accordance with established and accepted practices without recourse to the arbitrary exercise of police powers; and d.
Continue a free economy and private operation of industry, subject to government regulation only to the extent necessary to protect the public interest.
8.
Federal agencies shall maintain or develop the capability to respond promptly to any peacetime nuclear emergency covered by this guidance and shall plan to make available authorized resources for Federal emergency response operations.
9.
FPA and other appropriate Federal agencies shall encourage emergency preparedness planning by State and local governments, and, when requested, shall provide guidance and assistance in the preparation of their. respective plans.
The Federal Government shall render such assistance as 10.
the President may direct to nations bordering the United States which are affected by the emergency.
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The Federal Government may, if necessary, exercise temporary control over essential resources and activities following
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a nuclear detonation to assure that availabic resources are channeled and used effectively to. support survival and recovery needs.
B.
As s umptions.
1.
State and local ge ternments will, under their legal powers, fulfill their responsibilities for responding to peacetime nuclear emergencies.
2.,
The President, if the circumstances require it, will declare a " National Emergency" and, if so requested by the Governor of the affecte'd State, will also declare an " Emergency" or a " Major Disaster" under the provisions of the Federal Disaster Relief Act of 1974 (P. L.93-288).
3.
Legislative and executive authorities enabling the Federal Government to respond to a peacetime nuclear emergency either.
currently exist or will be acquired.
4.
Congress will, as necessary, appropriate emergency funds to permit implementation of Federal response plans and enact emergency legislation, if needed, to assist State and local governments in recovering from any peacetime nucicar emergenc y involving a nuclear detonation or widespread contamination.
5.
In the event of a peacetime nuclear emergency at or near seat (s) of Government, impairing or disabling government operations in the affected areas, provisions for continuity of government will be implemented.
6.
A nuc1 car detonation or widespread contamination may occur at or near critical industrial, military, financial,' or communications complexes, thereby endangering national security.-
C.
Planning guidance.
1 Response plans developed in compliance with this guidance shall cite authorities under which response activities would be conducted.
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It is anticipated that operational response measures to a peacetime nucicar emergency can be conducted within existing authorities. Howeve r, if a Federal agency needs additional authority to carry out essential response measures identified in a plan, that agency shall take appropriate steps to acquire I
such authority, coordinating its action with FPA.
3.
Federal operational response plans shall be oriented toward supplementing the resources and capabilities of State and local governments and toward meeting the various needs, such as interstate and regional coordination, which cannot be accomplished by the State and local governments.
4.
Each response plan developed under this guidance shall provide an overall concept of operation, including coordination of activities and impicmenting procedures, and shall identify those Federal and other agencies which will be expected to participate.
5.
Plans designed to be responsive to a specific category of peacetime nuclear emergency shall recognize any relationship to other categories and, where appropriate, specific provisions shall be included to facilitate the transition between categories.
6.
Each Federal plan developed to respond to a specific category of peacetime nucicar emergency shall, where interagency coordination of the response is required, identify a Federal agency, or an office within such agency, as the coordinator of the Federal response activities related to the peacetime nuclear emergency. This coordinating agency or office shall serve as the primary Federal point of contact for all State and Federal agencies responding to that eme rgenc y.
7.
Federal operational response plans shall include responsi-bilities and procedures for providing appropriate. emergency information and action advice for the public. Each operational response plan should provide that such emergency po'.l!.
.aformation be channeled, when appropriate, through a single, auuoritative source at the Federal level and be closely coordinated with any public information releases from State and local governments.
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Federal operational response plans shall include -
provisions for input and coordination by the Department of State of all aspects of a peacetime nuclear emergency having inte'rnational implications.
9.
If a peacetime nucicar emergency occurs in an area under Federal jurisdiction, the Federal Government shall assume primary responsibility for the initial response to the emergency.
Federal, State, and local government response and coordination shall be in accordance with plans developed under this guidance.
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PART III PLANNING RESPONSIBILITIES A.
Introduction. This part of the planning guidance describes the categories of peacetime nuclear emergencies which involve varying degrees of Federal response. It discusses the concept of assigning to certain Federal agencies the responsibility for coordinating the development of each of the Federal operational response plans.
These operational response planning agencies (ORPAs) are identified, and their planning responsibilities are outlined. Numerous Federal agencies, in addition to the ORPAs, have technical capabilities that are required for inclusion in the operational plans to be developed.
These capabilitica are listed in a brief discussion of Federal agency support responsibilitie s.
Suggestions are made as to which Federal agencies should be involved in the response to various
' peacetime nuclear emergency categories, but it is essential that the ORPAs ensure that the technical capabilities of appropriate agencies are incorporated in their plans.
B.
Description of peacetime nuclear emergency categories and status of existing plans.
1 Gene ral. Peacetime nuclear emergencies could arise from a variety of causes; their impact could vary from negligible to a highly improbabic catastrophe. Minor incidents involving radioactive contamination have occurred. Catastrophic peacetime nuclear emergencies have not occurred and are unlikely to occur, but, for planning purposes, must be considered. At the Federal level, peacetime nuclear emergencies have been placed in four categories as follows:
Category I -- A nuclear indident which is-limited in that its effects are minor and localized., Category I incidents are manageable under existing arrangements with resources readily availabic, and without recourse to extraordinary measures.
Category II -- An incident which has the potential of producing a nucicar detonation and/or widespread dispersal of radioactive contamination.
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i Category III -- An occurrence in which, despite all preventive and controlling efforts, there is a nuclear detonation and/or widespread dispersal of radioactive contamination.
Category IV -- The post-Category III environment during which long-range recovery and rehabilitation are effected.
Each category is discussed in greater detail below.
2.
Category I incidents.
a.
Description.
The distinguishing characteristics of these incidents are: (1) they create no widespread hazard to people and property, and (2) they can be managed under existing governmental or private arrangements using existing capabilities. These incidents can have diverse characteristics resulting from such causes as mechanical failure, human error / intent, or from natural phenomena such as earthquakes or hurrica..es. The radioactive materials involved could be of any grade in commercial use, or they could be in the form of weapons grade nuclear materials or actual nuclear weapons or radiological waste. Such incidents could occur at fixed sites (reactors or storage locations) or during transit of nuclear materials by land, sea, or air. Such incidents could involve minor release and dispersal of radioactive materials into the environment.
b.
Illustrative list of Category I incidents.
(1) Sma111eak at a nuclear power plant,. test or research reactor, or other fixed nuclear facility due to system failure.
(2) Fire at a nuclear storage facility resulting in minor radiological contamination.
(3) Accident in a nuclear laboratory resulting in minor leaks.
(4) Damage to a nuclear weapon at a storage site with resultant minor release of radioactive material.
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(5) Crash landing of an aircraft carrying a nuclear weapon, with no detonation and only minor contamination.
(6) Collision of a truck transporting a nuclear weapon, with minor radiological effects.
(7) Minor leak from a reactor used to power a naval surface ship or submarine.
(8) Minor radiological contamination resulting from an underground test.
(9) Minor radiological contamination resulting from an accident during the transportation of radioactive materials.
(10) Minor radiological contamination resulting from the handling and disposal of radioactive wastes.
c.
Status of Category I planning.
Considerable planning for Category I peacetime nuclear emergencies has aircady been accomplished at the Federal level, primarily by the DOD and ERDA, as these agencies are the primary holders of nuclear materials within the Federal establishment. 'It is the purpose of the FRPPNE to ensure that adequate and effective operational response planning is completed by all Federal holders of nuclear material. as well as those agencies (e. g., NRC) whose responsibilities cecompass holders of nuclear materials. The following extant plans and arrangements for Category I peacetime nuclear emergencies as well as those developed under the policy guidance of this document will be incorporated into the FRPPNE after review to ensure mutual compatibility in the Federal response to these types of incidents.
The Energy Research and Development Administration Radiological Assistance Plan (ERDA-RAP). This plan deals with the use of ERDA and other available radiological assistance response capabilities to cope with Category I incidents involving radioactive materials.
Under the provisions of this plan, ERDA technical assistance can be requested for responding to radiological incidents occurring in the operations of ERDA, licensees, other Federal agencies,' State or 13
local government agencies, and in the activities of private users or handlers of radioactive materials.
Interagency Radiological Assistance Plan (IR AP). This plan was developed as a means for providing rapid and effective assistance in the event of a radiological incident. It provides a means whereby the participating Federal agencies coordinate their radiological assistance response activities with those of State and local health, police, fire, and civil defense agencies. Under this plan, the signatory agencies have agreed to make their resources available for rapid response to a radiological incident, subject only to essential operational requirements in fulfillment of primary re sponsibilitie s.
The ERDA is designated as the responsible agent for the plan. Requests for ERDA and DOD technical assistance are made through the Joint Nuclear Accident Coordinating Center (JNACC). Signatory agencies include the Energy Research and Development Administration; Departments of Defense; Agriculture; Commerce; IIcalth, Education, and Welfare; L, abor; and Transportation; National Aeronautics and Space Administration; United States Postal Service; Environmental Protection Agency; Interstate Commerce Commission; Nuclear Regulatory Commission; and the Defense Civil Preparedness Agency.
The Nuclear Accident / Incident Control (NAIC) Plan. This Department of the Army plan deals with providing military resources to minimize loss of life, personal injury, hazardous effects, and destruction of property in the event of a minor nuclear accident or incident.
1 Joint Nuclear Accident Coordinating Center (JNACC). This joint ERDA-DOD coordinating center provides for the maintenance and exchange of information concerned with radiological emergency-response capabilities and for coordinating the provision of technical assistance in response to nuclear weapons and nonweapons radiological incidents involving DOD and/ or ERDA. The JNACC maintains current information as to the location and availability of specialized DOD and ERDA teams capable of responding to accidents involving nuclear weapons and nonweapons radioactive material. This technical capability can be made availabic to other Federal departments and agencies, and to State and local governments in responding to peacetime nuclear emergencies.
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In addition to the above-described besic plans and arrangements, designed to manage specific types of radiological incidents, ancillary plans have been developed by some Federal agencies. These plans provide some degree of decentralization of operations in managing peacetime emergencies. They also place primary reliance on local / State capabilities, supplemented when required with Federal support.
3.
Category H incidents.
a.
Description.
Incidents in Category H differ from those in Category I in three major respects. First, Category H incidents are confined to the threat of or potential for a peacetime nucicar emergency resulting in casualties and damage. This category does not involve actual nuclear detonation or widespread contamination. While there is a very low probability that a nuclear detonation and/or major radiological contamination will actually occur, such an incident would fall into Category HI. Second, Category II incidents have the potential for much more serious consequences than those in Category I.
Third, Category H incidents require more than a routine, low-level response; existing arrangements and capabilities may not be adequate to cope with such incidents. It is quite likely, for example, that a Governor might participate in coordinating the appropriate response actions; Presidential involvement is at least possibic.
These incidents could also have a highly significant psychological impact. The threat factor inherent in such incidents could be expected to generate crisis management type response actions by government officials at severa11cvels. The threat aspects of such incidents could possibly induce strong public reaction even though no actual detonation or release of radiation occurred.
b.
H1ustrative list of Category II incidents.
Theft of a nuclear weapon or other nuclear materials (1) from a manufacturing plant or storage site, or while being transported, thus raising the presumption of threatened imauthorized use of the weapon or material.
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(2) Overt 1 threatened.se of a nuclear weapon, nuclear device, or other nuclear materials for extortion or sabotage.
(3) Takeover of a nuclear reactor or other fixed nuclear facility with the threat of destruction of the reactor or the facility.
(4) Sabotage or accident involving nuclear power reactor or other fixed nuclear facility, with the potential for widespread contamination.
(5) Transportation accident involving radioactive mate rials, with the potential for widespread contamination.
((i) Accidental or unauthorized launch of a nuclear weapon by means of a missile or other delivery systems with the potential for impacting in the United States. (Note: This type of incident belongs conceptually in Category II only prior to impact of the weapon in the United States. Upon impact, it becomes either a dud (no casualties or damage), a Category I incident (minor radiological contamination), or a Category III incident (nuclear detonation).)
c.
Status of Category II planning.
ERDA and NRC plan and implement procedures to prevent successful malevolent acts involving nuclear materials or facilities. These include active and passive measures designed to:
deter a decision by a potential adversary to plan and carry out a malevolent act; detect promptly an attempt and interrupt successful completion of steps in the adversary sequence; and assist in assess-ment, pursuit, recovery, and consequence minimization activities with other agencies if earlier actions are unsuccessful.
The Federal Bureau of Investigation (FBI) maintains operational plans and procedures to co e with sabotage and extortion threats. These plans and procedures may have some degree of applicability to Category II peacetime nuclear emergencies and should be reviewed to incorporate any features that may apply particularly to peacetime nuclear threats.
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DOD plans and procedures for the accidental or unauthorized launch of a nuclear weapon are limited to activation and use of the military detection and warning systems and the intelligence gathering and analysis systems, the rapid notification of Federal and State governmental authorities, and the warning of the public. These plans and procedures should be reviewed in cooperation with appropriate elements of DOD and other Federal agencies in relation to the response planned for Category III peacetime nuclear emergencies to ensure that all necessary actions are included in DOD plans.
The DOD maintains operational response plans and procedures regarding nuclear weapons or naval nuclear reactor accidents, and these plans and procedures should be reviewed for their applicability to this nuclear contingency.
The DOD maintains operational response plans and The se procedures to effect the recovery of stolen nuclear weapons.
plans should be reviewed to incorporate assistance from other interested agencies and to coordinate the transition of responsibility for the recovery of stolen nuclear weapons to civilian authority.
4.
Category HI incidents.
a.
De sc ription.
These are situations'in which, despite all preventive, protective and response efforts, an actual nuclear detonation or widespread radioactive contamination, shall have occurred within the United States.
A nucicar detonation could come from a nuclear weapon or device of foreign or United States origin as a result of an accidental or unauthorized launch or from other means.
The nuclear detonation could range from a very low to a very high explosive yic1d. Widespread contamination could come from such nucicar detonations, or it could conceivably come from other sources such as the sabotage of nuclear power plants or other fixed nuc1 car facilities, a serious accident involving the transportaticn of i '
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facilitics, or the explosion of a crude nuclear device resulting in the dissemination of radioactive material.
The detonation of a nuclear weapon'or device could occur in an urban or built-up area causing property damage and/or a large number of casualties or it could occur in a remote area with little or no risk to the surrounding population. -
Category III incidents thus differ from those in Category I in that a large number of casualties and major property damage cculd occur, and extraordinary response actions would be required. They differ from those in Category II in that the damage is real, not merely threatened.
b.
Illustrative list of Category III incidents.
In general, Category III incidents grow out of Category II situations that have progressed to actual nuclear detonations, or to widespread radiological contamination from other sources. A Category I incident could also progress to a Category III. Category III incidents would typically fit into one or more of these groupings:
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l (1) The detonation of a nuclear _ weapon or device resulting in casualties and/or property damage.
i (2) Widespread contamination of people and property by radioactive materials, from whatever source.
(3) The detonation of a nuclear weapon or device and/or contamination which poses littic or no threat to surrounding population and property (i. e., a remote area).
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c.
Status 'of Category III planning.
Some operational response planning has been accomplished
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by individual Federal departments' and agencies to provide, response to this t7pc of nuclear incident. These plans have been directed to the support of State' and local operations for such immediate. requirements as accident assessment, evacuation or other protective action, lifesaving, rescue, medical care, -mass shelters and feeding,.
i radiological defense, temporary housing,.public health, restoration 18-J
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of essential public services, care and protection of livestock, and decontamination. Subsequent long-range recovery and rehabilitation activities are incorporated in Category IV.
5.
Category IV conditions, a.
Description.
A nucicar detonation or widespread dispersal of radioactive material can be expected to create, in addition to the need for immediate lifesaving actions and other related operations as described in Category III above, the need for long-range recovery and rehabilitation measures directed toward the permanent rebuilding and reconstitution of the socioeconomic structure, the physical facilities and institutions of the affected area (s) and the long-term reduction or elimination of radioactive contamination.
These measures would involve such things as housing, utilities, hospitals, schools, business and financial enterprises, govern-mental structures, and organizations. These measures can be expected to continue for months or years after the immediate life-saving operations have been completed, and should be administered by an organizational mechanism responsive to these long-range needs. Although it is difficult to provide any specific planning guidance for the long-range needs of an area affected by a peacetime nucicar emergency, it is essential that some forethought and consideration be given to such things as the reconstitution of local government operations, the rebuilding of the social and economic structure of the affected area (s), and the allocation of critical resources which may be in short supply following a nuclear -
detonation or dispersion of radioactive material.
b.
Illustrative list of Category IV situations.
Since Category IV conditions result from certain Ca'tegory III incidents, which in turn would likely grow out of Category II-incidents, a listing of illustrative, potential Category IV conditions can be inferred from the lists under Categories II and III.
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C.
Operational response planning agencies (ORPAs).
1.
Concept.
E com the preceding description of the four categories of peacetime nuclear emergencies, it is evident that the departments or agencies having responsibility for operational response planning f
have been or can be identified. This situation has developed from assignments by the Congress in public laws, by the President in
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2 Executive orders,.v ; thwugh acceptance by the department or agency concerned as a < oncomitant of the nuclear activity in which it is engaged. In most instances, these agencies has e enlisted the cooperation of other agencies in effecting a more complete, coordinated planning and response effort. In the process, significant capabilities have been generated within and among the Federal agencies.
To take maximum advantage of these capabilities and of existing responsibilities, assignments, arrangements, planning and operational experience, a concept of identifying or designating operational response planning agencies (ORPAs) will be adopted in the plans to be developed and reviewed under this guidance document.
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Implicit in this concept is the use of technical capabilities of the several Federal departments. Selected departments will be requested to serve as srpporting agencies, when appropriate, to assist the ORPAs in the production of Federal plans. The responsibilities outlined in this part are intended to provide direction to the designated ORPAs for their use in preparation and review of operational response plans, and where they might look for support in developing the plans. ORPAs, in coordination with FPA, are expected to task supporting agencies with planning and operational activities in which the latter are to make contributions to the coordinated plan. In some instances, designated ORPAs will assume a supporting role in plans developed for peacetime nuclear emergencies other than the one for which they have developed plans. Most Federal agencies are potentially supporting agencies. Designation as an operational response planning agency is applicable on'.y for the specific emergency cited.
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2.
Designation of operational response planning' agencies.
The designation of agencies responsible for completing and maintaining operational response plans for responding to peacetime nuclear emergencies is as follows:
Category I.
The following Federal departments and agencies are known to have custody of nuclear material of such quantity and characteristics that operational response plans are required:
Department of Commerce Department of Defense National Aeronautics and Space Administration Energy Research and Development Administration Tennessee Valley Authority I
4 Nuclear Regulatory Commission (NRC is not a holder of nucicar materials but retains statutory responsibility for maintaining cognizance of incidents involving all licensed materials. For this reason, NRC will serve as the operational response planning agency for licensed operators of fixed nuc1 car facilities, ensuring the adequacy of such response plans. It is recognized that this 1
NRC responsibility is already being implemented.)
4 Operational response pNns related to Category I incidents have been or shall be prepared by each of the departments and agencies designated above. Extant plans shall be reviewed for completeness and mutual compatibility with this guidance before forwarding to FPA for inclusion in the FRPPNE. Plans requiring support of other Federal departments and agencies (c. g., Environmental Protection Agency) shall be developed on a cooperative basis with -
those agencies with appropriate guidance provided by the ORPA to those supporting agencies.
Category II. Four departments and agencies have major operational response planning roles in developing measures to deal with Category II inci. dents. These are the DOJ, DOD, ERDA, and NRC.
These agencies,. while occupying _a primary planning role in reducing
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the hazard of specific types of incidents also may serve as support agencies to the ORPA, depending on the response needed.
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Department of Justice (DOJ).
The responsibility for the management and coordination of the Government's response to incidents of domestic, terrorism is focused in the Department of Justice (DOJ), under the direction of the Attorney General. Pursuant to the direction of the Attorney General, the Federal Bureau of Investigation (FBI) has primary jurisdiction and responsibility for directing operations required by such incidents, which include extortion threats, thefts, or sabotage involving nucicar materials. This responsibility for the investigation of nucicar threats is extended to threats directed toward foreign officials and official guests of'the United States.
The FBI, in preparing operational response plan (s) for responding to theft, extortion, and sabotage, shall plan to coordinate other necessary actions by State and local law enforcement officials.
The FBI, in addition to coordinating investigative,.ctivities, shall provide within its plans for liaison and coordination with other Department of Justice components and appropriate Federal agencies, with respect to the measures to be undertaken in the prevention and handling of extortion threats or thefts of nuclear materials.
Department of Defense (DOD).
DOD shall have primary responsibility for developing operational' response plans and procedures for an accidental or unauthorized launch of a nucicar weapon, for accidents in the transportation and storage of nucicar weapons or radioactive materials under the control of the DOD, and for implementation of required actions necessary to prevent the theft or sabotage of a DOD nuclear weapon.
DOD plans for incidents involving a threat to detonate a nuclear weapon or device shall focus on support in operations to locate and disarm the alleged weapon or device; or support, as appropriate, to affected State and local governments;.and preparation for emergency operations should a nucicar detonation or dispersal of radioactive material occur. Plans for responding to incidents involving' the theft or sabotage of a nucicar weapon and/or radioactive materials and their possible use for extortion shall be developed in cooperation with other Federal agencies, as required, to ensure 22' L:
full coordination in reaction to the incident and in providing a transition apparatus for the impicmentation of FBI plans.
Energy Research and Development Administration (ERDA). '
The.ERDA is responsibic for developing operational response plans and procedures for Category II type incidents within ERDA controlled facilities or in the transport of ERDA controlled nuclear weapons or radioactive materials. - ERDA plans and procedures shall provide for the implementation of FBI plans and procedures, as appropriate, in responding to the incident involving attempted theft or sabotage of nuclear weapons or radioactive materials or an act of terrorism.
ERDA shall provide the major source of technical expertise l
and special equipment to all Federal departments and agencies in responding to Category II peacetime nucicar emergencies.
Therefore, ERDA shall provide planning support to FBI,. DOD, and other agencies, as appropriate, in developing their operational response plans for Category II peacetime nuclear emergencies.
Nuclear Regulatory Commission (NRC).
The NRC is responsibic for developing operational response plans and procedure's for the Federal response to a Category II incident involving appropriate nuclear facilities or materials licensed under the Atomic Energy Act of 1954, as amended. The se plans shall draw fully upon technical and other support available from within the Federal Government, as well as setting forth the Federal-State-private sector relationships involved in responding i
to such an incident, and shall establish a crisis management structure to respond to a Category II incident involving a licensed nuclear facility or licensed radioactive material.
Category III. Four departments and agencies have major operational response planning roles in developing response measures to deal with Category III peacetime nuclear emergencies. These are DOD, ERDA, NRC and DIIUD.
Department of Defense (DOD).
The DOD shall prepare an operational response plan (s) for responding to the accidental or unauthorized detonation of, or 23
widespread radioactive contamination from, a nuclear weapon /
radioactive materials under the control or the DOD which does not involve major property damage and poses littic or no threat of casualties.
DOD should determine which Federal agencies would be involved in responding to such a contingency and should provide further policy and planning guidance necessary for those agencies to provide inputs to the DOD plaiming effort. Upon completion, this plan will be reviewed by the FPA for compatibility with other portions of, and for inclusion in, the FRPPNE.
Energy Research and Development Administration (ERDA).
The ERDA shall prepare an operational response plan for responding to the accidental or unauthorized detonation of a nuclear weapon, or widespread contamination from nuclear materials, under the control of the ERDA which does not involve major property damage and poses little or no threat of casualties. ERDA operationa1 response plans to such incidents shall be reviewed for their applicability to this contingency. ERDA shall determine which Federal agencies would be involved in responding to such contingencies and should provide further policy and planning guidance necessary for these agencies to provide inputs to the ER DA planning effort. Upon completion, this plan shall be reviewed by the FPA for compatibility with other portions of, and for inclusion in, the FRPPNE.
Nuclear Regulatory Commission (NRC).
The NRC shall prepare an operational response plan for respond-ing to accidental widespread contamination from radioactive materials under the control of licensees which does not involve major property contamination and poses little or no threat of casualties. NRC operational response plans to such incidents should be reviewed for their applicability to this type of incident. NRC should determine which Federal agencies would be involved in responding to such incidents and should provide further policy and planning guidance necessary for those agencies to provide inputs to the NRC' planning effort. Upon completion, this plan shall be reviewed by FPA tur compatibility with other portions of, and for inclusion in, the FRPPNE.
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Department of Housing and Urban Development (DHUD).
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The DI1UD shall, to the extent required by the provisions of Executive Order 11051, as amended, and Executive Order 11490, as amended, develop a comprehensive, coordinated Federal operational plan for responding to Category III contingencies involvii.g a nuclear incident which could be reasonably expected to result in severe property damage and/or a large number of casualtie s, or which involve widespread contamination of people and property by radioactive materials.
The DHUD, to the extent that its comprehensive operational response plan under this guidance involves reliance upon authority conferred by the Disaster Relief Act of 1974, shall coordinate that portion of that plan with such other Federal departments and agencies as the DHUD deems appropriate. In addition, the DHUD, in preparing that response plar, shall provide for liaison and ccordination with appropriate Federal departments and agencies i
providing technical assistance, resources, and support to the DIlUD housing and community-related response measures under-taken pursuant to Executive Order 11051, as amended, Executive Order 11490, as amended, and DHUD Handbook 3200. IA.
The DHUD, in developing its comprehensive operational response plan under this guidance, shall stress the need for coordinating the Federal assistance portion of that response plan with State and local' agencies engaged in compa: ?bic emergency preparedness activities involving peacetime nuclear emergencies.
The comprehensive operational response plan developed by DHUD pursuant to this guidance shall be reviewed by FPA for compatibility with related response plans prepared by other depart-ments and agencies and for inclusion in the FRPPNE.
Category IV. Planning for long-range recovery and rehabilitation from the consequences of a major peacetime nucicar emergency entails so many variables that it hardly seems likely that meaningful and detailed plans for long-range recovery and rehabilitation can
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be developed in advance of the incident involved and a thorough
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4 appraisal of its consequences.
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However, GSA/FPA, in meeting its preparedness responsibilities under Executive Order 11051, as amended, and Executive Order 11490, as amended, shall remain cognizant of the various needs for and methods, along with associated preparedness requirements and capabilities of the relevant Federal agencies, of providing long-range recovery and rehabilitation assistance to an area affected by a peacetime nuclear emergency of the type contemplated by those Executive orders. In meeting this responsibility, FPA shall in concert with other appropriate Federal agencies, examine alternative approaches to Federal planning for long-range recovery and rehabilitation in relation to catastrophic peacetime nuclear emergencies and, where appropriate, designate operational response planning agencies.
Pending the development of any specific operational response plans in this area, FPA shall, with the assistance of other Federal agencies, develop options for planning and administering the long-range recovery and rehabilitation efforts, a tentative list of minimum essential measures, and provisions for consultation with affected State and local authorities. FPA shall be responsible for incorporating these planning actions and any resulting operational response plans in the FRPPNE.
3.
International implications of peacetime nucicar emergencies.
In addition to the requirement for operational response plans related to the categories of peacetime nuclear emerpncies described above, the Department of State (DOS) has special re,ponsibilities related to all peacetime nucicar emergencies which inay have inter-national implications. The DOS is the primary agency for preparing those portions of plans that address any international implications or foreign country involvement regarding peacetime nuclear emergencies.
4.
Responsibilities of operational response planning agencies.
Operational response planning agencies are responsibic for management of the effort required to produce a complete, coordinated Federal operational plan for responding to the specific type peace-time nuclear emergency for which it has been designated an operational planning agency. This includes coordinating the-preparation of support agency operational response plans, where 26
such are needed, and their incorporation in the complete plan.
4 More specifically, an operational response planning agency is responsible for:
a.
Determining the complete list of Federal and private supportinh agencies and enlisting their assistance.
b.
Providing guidance, peculiar to the operational response planning agency (s) type of peacetime nuclear emergency, for use by appropriate Federal support agencies. This guidance should include assumptions and casualty and property damage estimates that can be used as a standard data base for planning.
c.
Ensuring that all functions essential to an effective response are included in the planning for which the operational planning agency has the lead responsibility. These functions should include the technical ones required to assess, counteract, and control the radiological effects; the humanitarian ones, designed to minimize the impact on individuals; and the recovery ones directed at restoring essential services to the affected area. A partial list of these functions and resources needed therefore follows (not all of them apply to each category of peacetime nuclear emergency):
(1) Notification. The action taken by a person (s) first notiag that an incident is in progress, or has occurred, in conveying the init al. information to the appropriate authorities and the process -
i by which the information is further relayed to higher authority and to the concerned elements of government. The Intelligence Community may play a major role by providing forewarning of an attack, especially by a foreign terrorist group; (2) Communications. The resources, facilities, organizations, procedures, and coordination required to assure adequate communications for carrying cut the notification process and the response to a peacetime nuclear emergency. The National Communications System's Plan for Communications Support in Emergencies and Major Disasters shall be utilized to the fullest extent possible; (3) Evaluation. The process by which cognizant officials reach a sound and rational estimate of the situation based 27-f*
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o
on the information received from all sources. This process involves receiving, assembling, and assessing information in order to make decisions on the actions to be taken; (4) Decisionmaking. The staff actions required to propose appropriate options or recommendations to the authority charged with managing the operational response and for proper dissemination of the decisions by that authority; (5) Public information. The responsibilities and procedures for advising the public sector of the situation, risks involved, and actions and measures to be taken to protect themselves from the effects of a nuclear incident; (6) Law enforcement. The pre and postincident arrange-ments for: (a) physical security of nuclear facilities, equipment, products, and personnel; (b) maintenance of civil order and control of traffic during the evacuation of inhabitants from threatened or damaged areas; (c) control of traffic, pedestrian and vehicular, into and from prohibited areas, including assistance to and control of directed or voluntary mass evacuation of the area of a peacetime nuclear emergency; (d) detection of nuclear devices and radioactive materials; and (c) where necessary, the apprehension of law breakers, and recovery of nuclear devices or radioactive materials; (7) Health and safety services. The arrangements for the protection of life and property in the immediate endangered area, through the provision of shelter affording protection from radiation, personnel evacuation, fire fighting services, debris cicarance, radiological monitoring and decontamination, medical services, cmcrgency shelter, and emergency feeding; (8) Survival operations. Immediate postnucicar detonation or post radioactive material dispersion functions performed to save lives, alleviate suffering and minimize the effects of damage to facilities and resources; (9) International relations. Functions of foreign affairs associated with notification and assistance to other countries i
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affected by a nuclear incident / accident occurring in areas or activities of the United States, particularly those countries bordering the United States; and (10) Short-term recovery operations. Immediate post-nuclear detonation or post radioactive material dispersion functions performed to restore essential facilities and systems to sustain life and minimize damage in the impacted area until more permanent remedial action can be taken.
d.
Assuring that an appropriace method of transition is provided between response measures included in the plan for which the operational planning agency has responsibility, and the plans related to other peacetime nuclear emergency categories.
As a general rule, operational response planning c.
agencies will take the lead in implementing the plans for responding to peacetime nuclear emergencies which have been developed under their leadership. However, this does not preclude the operational response planning agency from arriving at a conclusion, after appropriate discussions with the agency (s) concerned and FPA, that another agency should have primary responsibility for plan implementation. For example, where an agency has a functioning capability and mechanism for responding to a certain type of nuclear emergency within a category, it may be appropriate to assign that agency lead impicmenting responsibility.
f.
Providing information to State governments on the possible hazards of Federally owned and controlled nuclear facilitics/ weapons / materials to facilitate peacetime nuclear emergency planning at the State and local icvels.
g.
Carrying out the coordination of the planning effort as detailed in Part IV.
h.
Incorporating provisions for tests and exercises to determine the efficacy of each plan.
i i.
Periodic review and revision of plans based on such things as tests and exercises, changed conditions and circumstances, and evaluation of experience and operations during an actual peace-time nucicar emergency.
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NOTE: Where plans are in existence, their review should be accomplished with the foregoing responsibilities in mind.
D.
Federal support agency responsibilities. In' addition to specific operational planning responsibilities described above, numerous Federal agencies have emergency preparedness responsibilities assigned by Executive Order 11051, as amended, Executive Order 11490, as amended, or other Executive orders or by statute. These preparedness responsibilities remain unchanged, regardless of whether that agency is an operational response planning agency for a particular peacetime nucicar emergency or is a supporting agency meeting its planning and preparedness responsibilities under the guidance and leadership of an operational pla'nning agency. As previously described, most Federal agencies are potential support agencies. Designation as an operational response planning agency is applicable only for the specific emergency cited. The following description of responsibilities, as they apply to peacetime nuclear emergencies for which preparedness response plans are required under the provisions of Executive Order 11051, as amended, or Executive Order 11490, as amended, are provided as guidance to operational response planning and supporting agencies in preparing their response plans. Individual responsibilities are not applicable to all peacetime nuclear emergency categories. Therefore, selective use is essential. Other responsibilities may be added when mutually -
agreed to by the operational response planning and supporting agencies, with the concurrence of FPA.
4 4
OFFICE OF TELECOMMUNICATIONS POL' ICY is responsible for coordinating the development of plans and policies for the utilization of telecommunications resources in a peacetime nuclear emergency and shall be prepared to administer such telecommunications resources as may be required to cope with a peacetime nuc1 car emergency.
DEPARTMENT OF STATE is responsible for:
-- Providing all other Federal d partments and agencies overall foreign policy direction, coordination, -and guidance in the formulation and execution of those peacetime nuclear emergency preparedness 30
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l activities that have foreign policy implications, affect foreign relations, or depend directly or indirectly on the policies and I-capabilitics of the DOS;
-- Formulation and negotiation, in consultation with the DOD and other appropriate agencies, of contingency and postnucicar emergency plans with other nations;
-- Formulation and execution of policy affecting the relationships of the United States with other nations pertaining to peacetime nuclear emergencies, in consultation with other Federal agencies;
-- Reporting and advising on conditions abroad which bear upon a peacetime nuclear emergency; i
-- Communicating information and questions about the emergency to other nations;
-- Providing information to the United States public regarding i
the impact of the emergency upon this Nation's foreign relations; 4
-- Coordinating such actions wit other nations as may be necessary for the apprehension or neutralization of an extra-national political terrorist group or an international criminal group involved in a peacetime nuclear emergency; 1
-- Developing United States policy, in consultation with other appropriate departments and agencies, for providing assistance to other nations in connection with a peacetime nucicar emergency; I.
q.
-- Requesting aid from, or extending aid to,. other nations, l
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depending on the circumstances of the emergency; and
-- Protection and control of international organizations and foreign diplomatic, consular, and other official personnel and property in the United States during a peacetime nuclear emergency.
-h, DEPARTh1ENT OF TIIE TREASURY is responsible for:
- Directing any actions required to maintain or to reestablish i
- the orderly operation of the financial system after a nuclear det > nation 31-a t
4
4 or major dispersal of radioactive material, including (1) expediting the production and distribution of coin and currency to meet emergency. demands; (2) expediting the processing of claims resulting from damage or destruction of currency; (3) providing a moratorium on calling funds on deposit with banks designated as tax and loan depositories; (4) permitting the pledging of government guarantees of loans for rehabilitation purposes as collateral for-government deposits; (5) altering procedures pertaining to redemption
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or replacement of governm'ent securities; and (6) giving priority-handling of claims for the loss or destruction of government checks;
-- Enforcing custom laws, tax laws, and laws on the control of alcohol and firearms and Title XI (Regulation on explosives) of the Organized Crime Control Act of 1970;
-- Protecting the President, the Vice President, and other designated persons; and
-- Providing information, in consultation with the Department of 1
State, to foreign governments on matters related to financial and monetary concerns and engaging in discussions with foreign countries 9
i on those matters.
DEPARTMENT OF DEFENSE is responsible for:
-- Responding, as required, to accidents or the'fts involving nuclear weapons and other radioactive material under its control;
-- Subject to the requirements of the military mission and within i
legal parameters, providing military-assistance, both manpower and other resources, in support of and as requested by civil authorities; and
-- Coordinating and controlling the employment of military forces made availabic to support civil authorities, Within the DOD, the DEFENSE CIVIL PREPAREDNESS AGENCY is' responsible for:
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-- Issuance of guidance on the use of civil defense resources at all 1cvels of government, including warning, communications, train-ing, and radiological defense emergency response systems;
-- Assisting NRC in providi ig training, on-site assistance, and e
other assistance as appropriate to State and local governments in preparing and exercising peacetime nuclear emergency operational response plans for fixed nuclear facilities;
-- Warning the population, through State and local governments, if feasible, of the expected impact area in the event of an accidental missile launch or other impending nuclear incident; and
-- Informing the public of protective measures to be taken to ameliorate the effects of a nuclear detonation or major radiological contamination.
DEPARTMENT OF JUSTICE is responsible for:
-- Reviewing, when appropriate, the legal procedures developed by Federal agencies and issuing guidance with respect to public facilitic s, communications systems, transportation systems, or other facilities, systems, or services essential in a peacetime nuclear emergency;
-- Providing Icgal advice, as appropriate, to Federal agencies on the preparation of plans, directives, and procedures developed in preparation for a peacetime nuclear emergency;
-- Providing Icgal advice, as required, to the President, the Cabinet, and the heads of Executive departments and agencies on the implementation ot emergency measures;
-- Permitting emergency use of health resources of penal and correctional institutions to support State and local authorities in the event of a nuclear detonation;
-- Establishing controls, in cooperation with DHEW, on the distribution and use of narcotics during an emergency; 33
-- Establishing the mechanism, in coordination with the Depart-ment of Defense, for the transition of control of nuclear weapon recovery from the Department of Defense to civilian authority.
-- Managing the government's response to threatened, potential and actual incidents of domestic terrorism involving nuclear materials or weapons.
Within the DOJ, the FEDERAL BUREAU OF INVESTIGATION is responsible for:
-- Investigation of (1) all incidents of sabotage involving nuclear f acilitie s, weapons, and/or materials; (2) any theft of nuclear weapons and/or materials; (3) any extortion using nuclear components, devices, or materials; and (4) any other suspected criminal violations of the The FBI Atomic Energy Act of 1(154, as amended where necessary.
shall direct the investigative efforts leading to the recovery of the nuclear material. This responsibility includes the investigation of threats directed toward foreign officials and official guests of the U. S. ;
-- Assisting DHEW with the identification of the dead.
DEPARTMENT OF THE INTERIOR is responsibic for peacetime nuclear emergency planning and response activity in support of operational planning agencies in the (ollowing areas:
-- All forms of electric power and energy, including the generation, transmission, distribution, and utilization of this power and energy, consistent with agreements with the Federal Power Commission;
-- Natural gas (consistent with agreements with the Federal Power Commission) and petroleum, including plans for pipelines for their movement and facilities for the storage of petroleum and gas;
-- Solid fuels;
-- Water from all sources which lend themselves to management, This control, and allocation to meet emergency requirements.
responsibility shall include coordinating the emergency water plan-ning effort and those departments and agencies having water respon-sibilities; and l
34 i
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-- Land under Federal jurisdiction.
The-Department of thd Interior will also be prepared to exercisc prolonged trust responsibility, as directed by the President, of any.
unsafe and hazardous areas resulting from a peacetime ~ nuclear emergency.
DEPARTMENT OF AGRICULTURE is-responsible for:
j
-- Monitoring emergency production, processing, and distribu-tion of food resources;
-- Estimating and minimizing, where possibic, losses to '
agricultural resources from radiation effects; 9
-- Assuring the safety and wholesomeness of agricultural products in establishments under the continuous inspection of.USDA and agricultural commodities and products owned by the Commodity Credit Corporation or by the USDA;
-- Assisting in providing livestock feed to the affected areas.
l
-- Providing advice on and assisting in the disposition of live -
stock affected by radiation in coordination with the Environmental Protection Agency and HEW /FDA.
h.
-- Authorizing the distribution of food coupons and emergency food coupon allotments;
-- Use, conservation, disposal, and control of water to insure usable water for agricultural purposes and to prevent floods; and
(
-- Emergency protection, management, and utilization of National forest timber, range, water and related resources.
DEPARTMENT OF COMMERCE is responsible for:
l
-- Estimating potential or actual damage to industrial resources (excepting those involved in agriculture, housing, energy production, communications, transportation, or. Other areas assigned to other go ernme it a:;e acies) resa'.ung 'com a peacetime nuclear emergency';.
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-- Providing priorities assistance to assure the availability of supplies of essential material, equipment, construction and other service s;
-- Invcking anti-hoarding provisions;
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-- Directing emergency use of the technical analysis and support capabilities of all its constituent agencies; and
-- Recommending measures and authorities to deal effectively with problems of the industrial sector caused by a peacetime nuclear emergency.
Within the Department of Commerce, the NATIONAL OCEANIC AND ATMOSPHERIC ADMINISTRATION is responsible for:
-- Providing current and forecast weather information and warning advisory services, especially information about wind direc-tion and speed, boundary layer mixing, precipitation, and any other weather parameters affecting radiological fallout during a peacetime nuclear emergency involving large amounts of radiological contamina-tion.
-- Providing gamma radiation level readings from National Weather Service offices as requested by other Federal agencies.
-- Monitoring emergency production and processing of fishery products.
-- Estimating and minimizing, where possible, losses to fishery resources from radiation effects.
-- Assuring the safety and wholesomeness of fishery products in establishments under the continuous inspections of USDA.'
-- Providing advice on and assistance in the disposition of fishery products affected by radiation in coordination with the Environmental Protection Agency.
Within the Department of Commerce, the MARITIME ADMINISTRATION is responsible, under the coordinating authority of the Secretary of Transportation *, for providing assistance and direction, and Federal
(*Under arrangements to be agreed te, by the Departments of Trans-portation and Commerce in consultafion with FPA. )
l 36'
operational control if required, in matters relating to the operation of ocean shipping, ports, and port facilities during peacetime nuclear emergencies except those owned, controlled, or under the jurisdic-tion of the Department of Defense, and excepting those responsibilities of the Department of Transportation with respect to the entrance and clearance of vessels.
DEPARTMENT OF LABOR is responsible for:
-- Effective management and utilization of manpower resources to meet the emergency needs created by a peacetime nuclear emer-gency;
-- Estimating available manpower skills in the affected area (s) and identification of critical or shortage occupations;
-- Pr.iding income maintenance and protection programs for the affected labor force;
-- Maintaining labor-management relations during and imme-diately following a peacetime nuclear emergency; and
-- Establishing a mechanism for the wage and salary portion of any wage-price freeze that might be imposed during a peacetime.
nuclear emergency.
Within the Department of Labor, the OCCUPATIONAL SAFETY AND HEALTH ADMINISTRATION provides personnel and equipment to assist in radiological monitoring.
DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE is responsibic for:
-- Assistance to State governments in the development of plans for the prevention of adverse effects from exposure to radiation, including the use of prophylactic drugs to reduce radiation dose to specific organs, and health and medical care responses to radio-logical incidents;
-- Issuance of guidance on appropriate planning actions neces-sary for evaluating and preventing radioactive contamination of foods and animal feeds, and the control and use of such products should they become contaminated;
-- Issuance of guidance on emergency radiation doses related to the health and safety of ambulance services, hospital, and other health care personnel, in cooperation with EPA; 37 o
a 1
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-- Establishment and issuance of guidelines for radiation detec-tion and measurement systems for use by ambulance services and hospital emergency departments, in cooperation with NRC; and
-- Provision of advice, guidance, technical expertise and materials, and financial assistance, if authorized, to affected State This assistance is used to provide emergency and local governments.
and rehabilitation services.
medical services, public health measures, DHEW In addition to supporting State and local government activities, provides the following assistance directly from its headquarter, or I
regional offices or through the detail of personnel to other Federal, 4
State and local government agencies:
~
-- Evaluating the radiation environment as applicable to health 1
and welfare facilities and services;
-- Inspecting and estimating damages to hospital, medical, sanitary, welfare, and social security facilities, and food and drug stocks;
-- Locating food stocks and determining their fitness for human, animal or industrial use:
-- Recommending actions concerning the condemnation and embargo of contaminated foods, and the salvage and reprocessing of others.
-- Conducting epidemiological surveys and implementation of communicabic disease control measures, including mass immunina-l tions, obtaining vaccines, recommending sites for refuse disposal i
and for surveillance to prevent insect and rodent infestations, and recommending _ pesticides and how best to apply them;
-- Establishing mental health crisis counseling centers and obtaining official and professional agency personnel to' operate these centers;
-- Reestablishing local health and welfare departments, Social Security Offices, and educational facilities, and restoring essential l-health services; 38 s
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-- Evaluating requirements for and the availability of health re sour c e s. (manpowe r, facilitie s, supplies);
-- Providing money to obtain food, clothing, shelter, and other-necessities, medical care, and social services for eligible bene-ficiarie s;
-- Continuing or restoring social security cash benefits to eligible surviving families, disaster disabled workers under 65, and benefactors of Supplemental Security Income (SSI); and
-- Determining the extent of damages to school facilities, and assisting in filing applications for cleanup, minor repairs to build-ing, replacement of damaged or destroyed equipment, and temporary facilitie s.
1 DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT is responsible for:
-- Providing housing and community facilities related to housing 4
and urban development, including all types of accommodations used as emergency'and/or permanent dwellings; installation of facilities necessary to furnish water, sewer, electric, and gas service between the housing units and the nearest practical source of these utilities;
-- Assisting in the development of criteria for determining areas to be abandoned or which are best suited for redevelopment in the 4-event of destruction or severe damage;
-- Development of a civil emer*gency preparedness-program to include contingency plans for meeting responsibilities of DHUD, to the extent required by the provisions of E. O. 11051, as amended,
' and E. O. I1490,' as amended, with respect to all peacetime nuclear emergencies for which such civil emergency preparedness planning
~
is required by those Executive orders;
-- Administering and coordinating the Federal disaster assistance program whenever a peacetime nuclear emergency results in a Presidential declaration'of a " major disaster" or
emergency" under the provisions of the Federal Disaster Relief 39 h
i
Act of 1974, and the development of emergency response plans for carrying out those functions whenever any such declaration is based upon an incident constituting a peacetime nuclear emergency.
DEPARTMENT OF TRANSPORTATION is responsible for preparing emergency plans and developing emergency programs, in coordi-nation with the Federal transportation operating and support agencies, for the employment of all forms of civil transportation in support of efforts to deal with, and mitigate the effects of the several categories of peacetime nuclear emergencies described in Part II of this document.
Specifically, the Department of Transportation is responsible for:
-- Developing policies, plans, and programs to ensure that all modes of transportation will be used as required, to provide a unified coordinated transportation system to meet the requirements of any peacetime nuclear emergency;
-- Assisting State and local governments in emergency planning for transportation incidents involving nuclear material;
-- Coordinating planning activities of State and local authorities in adjoining areas for joint use of intrastate transportativu facilities and services where and when required;
-- Coordinating the development of facilities protection guidance material for transportation systems by the modal ope.~ating and support agencies. This guidance shall be directed toward protection of personnel and facilities of operating proprietorships, public and private, from the effects c,f peacetime nuclear emergencies;
-- Providing leadership and executive management as authorized by law and Executive order, to modal operating and support elements in coordinating the development of interagency planning to ensure
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the effective management and utilization of transportation resources during peacetime nuclear emergencies; and
-- Developing plans and policies for the utilization of the Coast Guard to meet the requirements of peacetime nuclear 40
emergencies, particularly for assistance to the POD in preventing the successful theft of a nuclear weapon.
CIVIL AERONAUTICS BOARD under coordinating authority of the Secretary of Transportation is responsible for administering priorities and expediting requests for exemptions by the air carriers in providing emergency air transportation to and from a peacetime nuclear emergency area (s).
The INTERSTATE COMMERCE COMMISSION is responsible for directing priorities and issuing orders to railroads; granting motor and water carriers immediate emergency operations authorities for expediting the emergency surface transportation of people and property to or from an area (s) affected by a peacetime nuclear emergency; and, under the coordinating authority of the Secretary of Transportation, is responsible for directing priorities govern-ing surface transportation of people and property by all surface modes.
TENNESSEE VALLEY AUTHORITY is responsible for:
-- Assisting the Department of the Interior in the integration of the TVA power system into peacetime nuclear emergency plans;
-- Directing the emergency management, operation, and maintenance of the TVA power system;-
-- Directing the emergency management, operation, and maintenance of the TVA water management system; and
-- Assisting the Interstate Commerce Commission, under the coordinating authority of the Secretary of Transportation, in the development of plans for integration and control of inland waterway transportation systems and, in cooperation with the Department of Defense and the Department of the Interior, preparing plans for the management, operation, and maintenance of the river control system in the Tennessee River and certain of its tributaries for navigation during an emergency.
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i FEDERAL FINANCIAL SUPERVISORY AGENCIES
-- The Board of Governors of the Federal Reserve System, the l
Comptroller of the Currency,- the Federal Home Loan Bank Board, l.
the Farm Credit Administration, the Federal Deposit Insurance Corporation, and the Securities Investor Protection Corporation participate with the Department of the Treasury in the formulation of peacetime nuclear emergency financial and stabilization policies
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av, ograms.
_ ENVIRONMENTAL PROTECTION AGENCY is-responsible for:
-- Establishing Protection Action Guides (PAG), in coordina-tion with appropriate Federal agencies, in terms of projected radiation doses which might result from radiological incidents' at fixed nuclear facilities or in the transportation of radioactive -
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materials;
-- Recommending appropriate protective actions which can be taken by governmental authorities to ameliorate the consequences of a radiological incident at a fixed nuclear facility or from an I
incident involving transportation of radioactive materials;
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-- Establishing, in cooperation with NRC, emergency radiation detection and measurement systems guidelines;
-- Developing guidelines for the disposal of the dead, removal of solid wastes, animal carcasses, and other debris, whether radioactive or nonradioactive, which might contaminate the I
environment;
- Assisting the responsible agency at the scene of the incident by providing monitoring teams to measure environme.tal radiation, and to evaluate the extent of the contamination; and
-- Ensuring that adequate potable water is available for public use.
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FEDERAL POWER COMMISSION is responsible for supplying data on the
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nation's electric and natural gas energy systems to Federal agencies having decision-making responsibilities for energy resources during a peacetime nuclear emergency in which a national emergency is declared by the President. The FPC will also provide recommendations and advice for actions and decisions by other Federal agencies based upon the best information available and FPC's experience.
During a peacetime nuclear emergency which does not result in a Presidential declaration of a national emergency, but which does create serious interruptions or threats to the nation's interstate electric system, the FPC is responsible for exercising emergency electric generating and.
power transfer authorities in accordance with Section 202(c) of the Federal Power Act. The FPC has no similar emergency authority over interstate natural gas transmission systems but will provide extensive data and expert advice to other Federal agencies responding to the needs of the emergency. "
GENERAL SERVICES ADMINISTRATION. In addition to the responsi-bilities of the Federal Preparedness Agency, GSA is responsible for:
-- Providing and managing property and facilities for Govern-ment emergency activities;
-- Providing rapid telecommunications, motor vehicles, and other normal support functions for Government operations in areas affected by a peacetime nuclear emergency;
-- Providing rapid restoration or new procurement of needed s t ructu res, supplies, and strategic materials during the emergency; and
-- E n.
ing that the cultural institutions are included in warning system plan in order to maximize preservation of fine arts, museums, historical buildings, libraries, etc.
SECURITIES AND EXCHANGE COMMISSION is responsible for.
emergency procedures, which will.be prepared in collaboration with the Department of the Treasury and other executive departments and independent agencies, f,or emergency financial control plans, programs, procedures, and regulations for the maintenance _ of fair and orderly markets, including plans for:
-- A temporary suspension of trading in securities on national security exchanges or over-the-counter; 43 i
-- A national records program to facilitate the determination of current ownership of securities; and
-- Coorci1 nation with other ' Federal agencies on current reporting ~
procedures relating.to the movement of capital from or within the U. S. including plans and procedures for expediting the availability of capital to issuers affected by the emergency.
VETERANS ADh11NISTRATION is responsible for:
-- Providing emergency inpatient and outpatient care and treat-ment in VA medical facilities in participation with DOD and DHEW, as provided in interagency agreements; and
-- Making payment of compensation, pension, rehabilitation, education, and insurance benefits during a peacetime nuclear eme rge nc y.
ENERGY RESEARCH AND DEVELOPMENT ADMINISTRATION is responsible for:
-- Responding, as required, to accidents. involving nuclear weapons and other radioactive material under its control;
-- Assisting other agencies in developing and establishing guidelines on effective systems of emergency radiation detection and measurement, including instrumentation;
-- Determining the accident potential at each non-licensed ERDA
' fixed nuclear facility;
-- Assisting in assessing the technical credibility of nuclear th reats ;
-- Conducting those operations required to recover a nuclear weapon stolen from an ERDA facility or while in ERDA custody.
-during transit;
-- Assisting in the location, identification, and deactivation of nuclear explosives, nuclear weapons, or. radioactive material dispersal devices;.
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-- Assisting in assessing the near and long-term radiological health and safety hazards resulting from a cOtonation or major dispersal of radioactive material;
-- Assisting in radiological monitoring and decontamination;
-- Providing medical advice on and emergency treatment of radiological exposure; and
-- Assisting in the evaluation of personnel radiation exposure, assessment of radiological hazards, and providing technical and scientific advice on radiological contamination.
The NUCLEAR REGULATORY COMMISSION shall prepare nuclear emergency plans and develop preparedness programs for the continuing conduct of Federally licensed nuclear energy activities.
These plans and programs shall be designed to develop a state of readiness in these areas with respect to all conditions of nuclear emergency in peacetime consistent with applicable provisions of-the Atomic Energy Act of 1954, as amended, and the Energy Reorganization Act of 1974, and shall be closely coordinated with
'he Department of Defense, ERDA and the Federal Preparedness The Nuclear Regulatory Commission is, in accordance
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with the Notice of Interagency Responsibilities Statement published in the Federal Register of December 24, 1975, responsible for:
-- Developing anu promulgating guidance to State and local
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governments, in coordination with other Federal agencies, for the preparation of radiological emergency response plans;
-- Reviewing and concurring in such plans. (Proper correla-tion among State, local government, licensee, and national plans is an element of this review);
-- Determining accident potential at each licensed fixed nuclear facility; and
-- Issuing guidance for establishment of effective systems of emergency radiation detection and measurement. '
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T UNITED ST ATES ~ JSTAL SERVICE, by voluntarily complying with the provisions of Executive Order 11490, as amended, as well as carrying out its normal function of delivering the mails, is responsible for:
-- Providing emergency mail service in the affected areas; and
-- Registering persons and families, in cooperation with DHEW,
'to permit State and local welfare agencies to answer inquiries and reunite families.
NATIONAL AERONAUTICS AND SPACE ADMINISTRATION is responsible for:
-- Adapting and utilizing the scientific and technological capabilities of NASA, as required, to meet priority needs of the programs of the Federal Government in a nuclear emergency.
These capabilities include radiological, environmental, health, and medical support personnel, radiation sampling, detection, and monitoring instruments, radiation and analytical chemistry laboratory support, and heat-sensing surveillance by both aircraft and satellite; and
-- Assisting, via satellite utilizat2on, in environmental and weather monitoring, communications n-stworks, and damage assessment as requested by other governmental agencies.
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4-PART IV PLANNING COORDINATION AND IMPLEMENTATION A.
Introduction. The number of nuclear emergency categories, the potential variety of types of incidents within each category, the interrelations that exist between categories and types, and the multiplicity of agencies involved in peacetime nuclear emergency operational response planning all point to the need for careful and extensive coordination of the planning effort. This part outlines the coordinating responsibilities of the operational planning agencies, the supporting agencies, and the State Department. It addresses the special nature of Federal-State coordination, and the overall coordinating role of FPA. Finally, it provides information on implementation.
B.
Operational response planning agency coordination. Agencie s so designated shall coordinate with:
1.
FPA to ensure that the guidance contained in this document is disseminated and appropriately used by all participating agencies; 2.
Other ORPAs to minimize duplication of effort, to insure there are no obvious conflicts in resource utilization, and to provide for an orderly transition from one category of peacetime nuclear emergency to another; 3.
Supporting agencies to ensure that complete and effective response measures are included in the plans related to the category peacetime nuclear emergency fcr which the ORPA is responsible; 4.
State governments, as applicable, on general State and s
local considerations related to planning and responding to the appropriate catergry peacetime nuclear emergency; contacts with State governmer's will be coordinated with FPA regions to minimize the impact of Federal planning on State activities; and 5.
The Department of State on matters with international implications and assist that department in carrying out its role as the primary agency in the preparation of plans for handling those implications.
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C.
Supporting agency coordination. Agencies so design'ated will coordinate with:
l.
ORPAs to ensure their capabilities and organizational plans r' lated to peacetime nuclear em gencies are reviewed and e
integrated into tlic support agencies' planning effort;.
Z.
Other support agencies as needed to ensure proper coordination of responsibilities and inputs to operational planning agencies; 3.
State government counterparts on specific State and local considerations concerning response measures to which the support agency has responsibility.
D.
The Department of State will coordinate with operational planning a ge nc ie s, support agencies and State governments, as needed, to facilitate its plans for responding to peacetime nuclear emergencies which have international implications.
E.
Federal-State coordination. A significant element of the planning, at the Federal' level, for responses to peacetime nuclear emergencic ' for which civil emergency preparedness planning is required under the provisions of Executive Order 11051, as amended, or Executive Order 11490, as amended, -is how such planning relate s to, and is coordinated with, what is being done at the State and local government levels. Closely related planning by the Federal Government and by the States and their political subdivisions is essential to ensure a coordinated countrywide approach to this.important civil emergency preparedness activity.
Since adequate Federal-State coordination is a crucial element in planning for, and responding to, peacetime nuclear emergencies, special emphasis is given to it in separate guidance contained in Annex I.
This guidance addresses the following factors concerning Federal,-State relationships:
4 1.
Established relationships, where they are adequate and '
where they need clar.ification or strengthening; 2.
The additional or altered relationships required to cope with the various types of peacetime nuclear emergencies; 48
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Delineation of State versus Federal areas of responsibility-for response measures, including State and Federal agencies' perceptions of these areas; and 4.
Policy considerations from 1, 2, and 3, above, and recommendations as to how they should be handled.
F.
Federal Preparedness Agency, GSA (FPA), shall be responsible for the overall coordination of the civil emergency preparedness planning effort resulting from this guidance. In carrying out this responsibility with respect to peacetime nuclear emergencies for which contingency preparedness plans are required under the provisions of Executive Order 11051, as amended, or Executive Order 11490, as amended, FPA shall:
1.
Provide a continuous forum for the coordination of Federal peacetime nuclear emergency planning activities including making FPA personnel available to facilitate those efforts; 2.
Provide additional or revised policy and planning guidance whenever such action will serve a useful purpose; 3.
Review guidance that lead planning agencies provide to support agencies; 4.
Provide assistance in resolving Federal interagency or Federal-State problems whenever s :h action facilitates the fulfillment of responsibilities assi ned to Federal agencies by h
this guidance; 5.
Encourage States to produce plans related to this guidance as part of their general State civil emergency preparedness planning; 6.
Coordinate visits of Federal agency representatives to States in connection with the development of peacetime nuclearL cinergency plans under this guidance; e
7.-
Ensure that Federal plans are mutually compatible and consistent, paying particular attention to those portions dealing with measures designed to provide for an' orderly transition if a situation-escalates from a lesser to a more serious category of peacetime nuc1 car emergency; and 49
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Determine the format of the compendium of plans which will comprise the Federal Response Plan for Peacetime Nuclear Emergencies, and the manner and timing of promulgation.
G.
Implementation.
1.
The provisions of this guidance are effective, on an interim basis, for planning and associated activities upon its is suance.
2.
Provisions for implementing the response measures developed under this guidance shall be described in the separate plans. These provisions shall be coordinated with FPA.
3.
During an actual peacetime nucicar emergency for which emergency preparedness planning is required by the provisions of Executive Order 11051, as amended, or Executive Order 11490, as amended, FPA shall monitor the Federal response and, if warranted by the circumstances and severity of the emergency, shall:
a.
Facilitate coordination among Federal and State agencie s; b.
Assist the agency coordinating the Federal response in alerting other concerned Federal agencies as to the potential for a lesser peacetime nuclear emergency to develop into a more serious c.te; c.
Provide policy guidance to appropriate resource agencies to assist them in establishing priorities and allocations for the production, distribution, and use of critical resources; d.
Make status reports to department and agency heads, White House staff officials, and the President, as appropriate; and e.
Provide, as a supplement to the extant or existing pre-emergency plans, the means for, and direction of, ad hoc Federal conting,ency planning, including the development of operational response options, for the specific situation at hand.
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