ANNEX D
RADIOLOGICAL PROTECTION
CITY OF HOUSTON
TABLE OF CONTENT
COVER………………………………………………………………………………...….i AUTHORITY & IMPLEMENTATION…………………………………………….....ii TABLE OF CONTENT………………………………………………………………...iii 1.
AUTHORITY………………………………………………………………………1
2.
INTRODUCTION…………………………………………………………………1
3.
PURPOSE…………………………………………………………………………..2
4.
SCOPE……………………………………………………………………………...2
5.
EXPLANATION OF TERMS…………………………………………………….2
6.
SITUATION & ASSUMPTIONS…………………………………………………4
7.
CONCEPT OF OPERATIONS……………………………………………….......7
8.
PHASES OF MANAGEMENT…………………………………………………...9
9.
ORGANIZATION, ASSIGNMENTS, & RESPONSIBILITIES……………...10
10.
DIRECTION, CONTROL, & COORDINATION……………………………..15
11.
READINESS LEVEL……………………………………………………….........16
12.
ADMINISTRATION & SUPPORT……………………………………………..19
13.
ANNEX DEVELOPMENT & MAINTENANCE……………………………....20
14.
REFERENCES…………………………………………………………………...21
15.
APPPENDICES………………………………………………………………......21 APPENDIX 1……………………………………………………………………..23 APPENDIX 2……………………………………………………………………..24 APPENDIX 3……………………………………………………………………..25 APPENDIX 4……………………………………………………………………..26 APPENDIX 5……………………………………………………………………..28 APPENDIX 6……………………………………………………………………..31 APPENDIX 7……………………………………………………………………..32 APPENDIX 8……………………………………………………………………..33 APPENDIX 9……………………………………………………………………..35
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1. AUTHORITY 1.1.
City of Houston City Charter, as amended, November 7, 2006
1.2.
City Ordinance #04-682, as amended April 18, 2007
1.3.
City of Houston Administrative Procedure 4.2
1.4.
Executive Order #1-25, Exercising of Mayors Emergency Authority during a Local State of Disaster
1.5.
Executive Order #1-49, Adopting the National Incident Management System
1.6.
OSHA Regulation 29 CFR 1910.120, Hazardous Waste Operations and Emergency Response
1.7.
State of Texas Executive Order of the Governor (RP40) Relating to the National Incident Management System
1.8.
Texas Commission on Environmental (TCEQ)
1.9.
U. S. Nuclear Regulatory Commission, Strategic Plan 2008-2013
1.10.
National Strategy to Combat Weapons of mass Destruction
1.11.
Homeland Security Act of 2002
1.12.
Post-Katrina Emergency management Reform Act of 2006 (PKEMRA)
1.13.
Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA)
1.14.
1.14 National Oil and Hazardous Substances Pollution Contingency Plan (NCP) 40 CFR 300
1.15.
Atomic Energy Act (AEA) of 1954 (as amended)
1.16.
Federal Executive Order 12656 of November 18, 1988
1.17.
Title 50, U.S.C., War and National Defense
1.18.
Public Health Service Act (PHSA)
1.19.
Refer to City of Houston Basic Plan, Volume I
2. INTRODUCTION 2.1.
The City of Houston has numerous facilities that utilize radiological materials increasing the risk and threat of encountering a radiological or nuclear emergency. Approximately 90 miles to the south is the South Texas Nuclear Plant producing much of the electrical grid of South Texas.
2.2.
The potential for an incident involving radiological or nuclear material is a possibility, which if occurred would require technically trained emergency responders and specialized radiological monitoring equipment. This annex will provide guidance on identifying managing and coordinating efforts unique to a radiological or nuclear emergency.
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3. PURPOSE 3.1.
The purpose of this annex is to identify key radiological incident response functions, including department roles and responsibilities for coordination of the critical functions, defining organizational concepts necessary to address radiological incidents impacting or having potential to impact local and regional jurisdictions. 3.1.1. These guidelines for managing a radiological incident will allow our jurisdiction to provide a coordinated response to emergencies involving radioactive materials and for determination and implementation of local measures to protect life, property, and environment during the course of the event. 3.1.2. Standard Operating Procedures (SOPs) or Standard Operating Guidelines (SOGs) specific to strategies, tactics and tasks necessary to support management of a radiological/nuclear incident will be maintained in departments’ response and operational plans.
4. SCOPE 4.1.
This annex applies to two categories of nuclear or radiological incidents: 4.1.1. Inadvertent or accidental releases 4.1.2. Releases related to deliberate acts.
4.2.
These incidents may vary in severity from small to catastrophic requiring technical and specialty response and mitigation effort.
4.3.
Incidents may include potential release of radioactive material that poses an actual or perceived hazard to public health, safety, security, and/or the environment.
5. EXPLANATION OF TERMS 5.1. Acronyms ALARA DDC DEC DHS DOE DPS DSHS EOC EMC FEMA
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As Low As Reasonably Achievable (TDEM) Disaster District Chair Department Emergency Center (US) Department of Homeland Security (US) Department of Energy Department of Public Safety Department of State Health Services Emergency Operations Center Emergency Management Coordinator Federal Emergency Management Agency
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2
HDHHS HFD IC ICP ICS IND NERDD NRC NIMS NRF NRIA OSHA RCP RDD RED RRT RSO SMRAP SOP TDEM TDPS TDSHS TDSHS/RLB TLETS TXDOT WMD
Houston Department of Health and Human Services Houston Fire Department Incident Commander Incident Command Post Incident Command System Improvised Nuclear Device Non-Explosive Radiological Dispersal Device Nuclear Regulatory Commission National Incident Management System National Response Framework Nuclear/Radiological Incident Annex Occupational Safety and Health Administration Radiation Control Program Radiological Dispersal Device Radiological Exposure Device Radiological Response Team Radiation Safety Officer Southern Mutual Radiation Assistance Plan Standard Operating Procedures Texas Division of Emergency Management Texas Department of Public Safety Texas Department of State Health Services Texas Department of State Health Services / Radiological Licensing Branch Texas Law Enforcement Telecommunications System Texas Department of Transportation Weapons of Mass Destruction
5.2. Definitions 5.2.1. Decontamination: the reduction or removal contamination from a structure, object, or person.
of
radioactive
5.2.2. Dirty Bomb: a device designed to spread radioactive material by conventional explosives when the bomb explodes. A dirty bomb kills or injures people through the initial blast of the conventional explosive and spreads radioactive contamination over possibly a large area hence the term dirty. Such bombs could be miniature devices or large truck bombs. A dirty bomb is much simpler to make than a true nuclear weapon and is frequently referred to as a radiological dispersal device (RDD). 5.2.3. Dosimeter: a small portable instrument (such as a film badge, thermoluminescent dosimeter [TLD], or pocket dosimeter) for measuring and
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recording the total accumulated dose of ionizing radiation a person receives. 5.2.4. Dosimetry: assessment (by dosimeter measurement or calculation) of radiation dose. 5.2.5. Nuclear Attack: unlike a dirty bomb which disperses radioactive material using conventional explosives, is the use of a device that produces a nuclear explosion. A nuclear explosion is caused by an uncontrolled chain reaction that splits atomic nuclei (fission) to produce an intense wave of heat, light, air pressure, and radiation, followed by the production and release of radioactive particles. For ground blasts, these radioactive particles are drawn up into a mushroom cloud with dust and debris, producing fallout that can expose people at great distances to radiation. 5.2.6. Radiation Contamination: the deposition of unwanted radioactive material on the surfaces of structures, areas, objects, or people. Contamination occurs when a person has radioactive materials on or inside their body. Radioactive material can be airborne, external, or internal. Refer to decontamination. 5.2.7. Radiation Exposure: A person exposed to radiation does not necessarily mean they are contaminated with radioactive material. An example is being exposed by having an x-ray, but is not contaminated with radioactive material. 5.2.8. Radiological Attack: is the spreading of radioactive material with the intent to do harm. Such attacks include nuclear attacks, radiological dispersal devices (RDD), and non-explosive radiological exposure devices (RED). Radioactive materials are used every day in laboratories, medical centers, food irradiation plants, and for industrial uses. If stolen or otherwise acquired, many of these materials could be used in RDDs or REDs. 5.2.9. Radiological Dispersal Device (RDD): a device that disperses radioactive material by conventional explosive or other mechanical means, such as a spray. 5.2.10. Radiological Exposure Device (RED): a sealed radioactive source that is placed in a public place and causes exposure but not contamination to those in proximity. (Note: if an RED were to break open, it would then be similar to an RDD). 5.2.11. Shielding: is material either stationary or placed between a radiation source and a potentially exposed person for the purpose of reducing exposure contamination.
6. SITUATION & ASSUMPTIONS 6.1. Situation
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6.1.1. Radioactive Materials 6.1.1.1. Radioactive materials are hazardous materials that receive special coverage in state and federal laws and regulations that control the handling and use of such materials, and the plans that establish unique state and federal procedures for handling incidents involving them. 6.1.1.2. In addition, the state and federal agencies that provide advice and assistance to local governments during radiological incidents may differ from those that provide advice and assistance during most other hazardous materials incidents. This Annex refers specifically to the threats associated with ionizing radiation. 6.1.2. Radiological Incident Management 6.1.2.1. Except for radiological incidents involving federal facilities or federally owned nuclear materials, the State or local government has the immediate responsibility for taking required emergency response actions implementing National Incident Management System (NIMS). For additional details on NIMS refer to the Basic Plan Vol. 1, section 3.4. 6.1.3. Radiological Hazards 6.1.3.1. The City of Houston and surrounding region is susceptible to accidents involving radioactive materials both at fixed sites and during transportation of radiological material. 6.1.3.2. The commercial and medical uses of radiological materials and the transportation of these materials make Houston susceptible to incidents that may involve small concentrated sources of radiation and low level radiation releases. 6.1.3.3. Radiography sources are commonly used by industry for field x ray inspection of pipe welds. Hospitals, medical facilities, and academic research institutions use a wide range of radioactive sources within their nuclear medicine and research development programs. Additionally, radiological materials are transported on highway and rail systems within and throughout the City/region. 6.1.3.4. The NASA Lyndon B Johnson Space Center is located within the city limits of Houston. 6.1.3.5. Located 90 miles to the Southwest of Houston is the South Texas Project (STP) nuclear power electricity generating plant in Matagorda County. 6.1.4. Terrorist Activities—Radiological Attack 6.1.4.1. Houston has been designated by the Federal Government as being a significant and potential target area. Therefore, it is
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possible this City’s political community, industrial base and the medical and academic research communities could be the target of terrorist groups and/or individuals. There are different forms of radiological attack that may be employed by our adversaries. The underlying assumptions for such attacks have been stated in the National Planning Scenario #1: Nuclear Detonation – Improvised Nuclear Device and National Planning Scenario #11: Radiological Attack – Radiological Dispersal Device. 6.1.4.2. The Houston Fire Department (HFD) will be the lead authority in the majority of incidents involving radioactive material. HFD will notify and alert other key stakeholders as necessary to manage and mitigate threat responders and community. 6.1.4.3. If incident large-scale and complex the HFD Incident Commander (IC) will request activation of the EOC and assign a liaison. HFD will coordinate and manage all Fire, EMS, Rescue, and Hazardous Materials services; provide fire suppression; provide search and rescue operations, including high-rise evacuation; establish control zones; alert hospitals of known or suspect "Chemical Biological Radiological Nuclear Explosives" (CBRNE) involvement/exposure; manage mass casualties; and remain on scene until incident mitigated and environment. 6.1.4.4. See Annex V (Terrorist Incident) section IV. A. for additional details pertaining to terrorist incident and management. 6.2. Assumptions 6.2.1.
The City has potential to experience radiological emergency situations, which may threaten public health and safety, private or public property and/or the environment, which will necessitate the implementation of protective actions for the public at risk.
6.2.2.
A nuclear attack against the United States is considered highly unlikely. A radiological attack by criminals or terrorists in the local area is possible, but considered unlikely.
6.2.3.
Radiological attack may present as an overt, readily identifiable threat or as a covert attack. Such attacks may employ the use of IND, RDD, NERDD, or RED.
6.2.4.
A combination of trained local response personnel, operational detection equipment, and containment/decontamination equipment and facilities are available to detect, assess, and contain radiological incidents.
6.2.5.
Depending on the presentation of an incident scenario either the Houston Fire Department (HFD) or the Houston Department of Health
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and Human Services (HDHHS) may initially respond. For larger or more expansive incidents both Departments may coordinate response efforts together including activating the City Emergency Operations Center and additional resources. 6.2.6.
Deployable State level radiological response resources will be available within 2 to 12 hours of request.
6.2.7.
Deployable federal level radiological response resources will be available within 12 to 72 hours of request.
6.2.8.
Evacuation of the population in and around a radiological release site may require community sponsored sheltering.
6.2.9.
Professional resources (federal and state agencies) will be available to collect and disseminate the necessary data including the effects that the release would have on the community.
6.2.10.
Apparent or potential deliberate act involving radiological material will be reported to DOJ through the FBI for law enforcement coordination activities.
6.2.11.
The federal domestic radiological incident coordinating agency is determined based on established agency authorities as referenced in the federal Nuclear/Radiological Incident Annex (see References).
6.2.12.
Provision of response functions identified in this plan may require the coordination of outside resources and may involve local, regional, state, and federal cooperation.
6.2.13.
Response functions that are not identified in this plan may require coordination of outside resources which may involve and require local, regional, state, and federal cooperation.
6.2.14.
A combined and coordinated organized effort to respond, manage and recover from an incident will reduce the impact on the community.
6.2.15.
A combination of intelligence gathering, training & exercising, as well as properly maintaining equipment are critical components to ensuring a successful execution of this plan during a radiological/nuclear incident.
7. CONCEPTS OF OPERATIONS 7.1. General 7.1.1. Overall safety and success of the response to a radiological incident is predicated upon having the following: 7.1.1.1. Trained Radiological Safety Officers, 7.1.1.2. trained and appropriately equipped (including dosimetry, PPE, radiation detection instrumentation, and communications equipment) response personnel to provide life-saving measures, environmental monitoring & ANNEX D – RADIOLOGICAL
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assessment, field decontamination measures, field medical triage, and medical transport, 7.1.1.3. medical care capacity, 7.1.1.4. sheltering capacity, 7.1.1.5. information gathering and situational reporting capacity, and 7.1.1.6. Emergency Operations Center (EOC)’s ability to support all aspects of the response. 7.1.2. The National Incident Management System (NIMS) will be used to manage and efficiently mitigate any such incident by integrating a combination of facilities, equipment, personnel, procedures, and communications into a common organizational structure. NIMS is used to organize both near-term and long-term field level operations for a broad spectrum of emergencies, from small to complex incidents, both natural and manmade. 7.1.3. Response from State and local entities will follow NIMS (ICS) operating principles and protocols, and will constitute general guidance for all responders in the management of a radiological incident. 7.1.4. Incidents are to be managed at the lowest possible level; as incidents change in size, scope, and complexity, the response will adapt to meet requirements, as described in the National Response Framework (NRF). In accordance with HSPD-5, “the Secretary of Homeland Security is the principle for operations within the United States to prepare, respond to, and recover from terrorist attacks, major disasters, and other emergencies. Such incidents include, but are not limited to, loss of radiography sources, discovery of orphan radiological sources, and incidents/emergencies at nuclear facilities below classification of General Emergency, as defined by the coordinating agency. 7.1.5. Various federal coordinating agencies will lead the response to incidents of lesser severity by coordinating federal radiological monitoring assistance to state and local governments. 7.1.6. See additional details of NIMS implementation in the Basic Emergency Management, Annex I - Public Information, Annex M - Resource Management and Annex N - Direction and Control. Departmental emergency management policies and procedures are developed based on the National Incident Management System (NIMS). 7.2. Radiological Incidents (Accidental or Intentional) 7.2.1. This section outlines the local, regional, state, and federal coordination of the response and recovery functions that can be anticipated for radiological incidents in order to protect responders and the public, save lives, control radiological exposure, protect the environment, and return to pre-incident conditions.
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7.2.2. To the extent possible appropriate assessment, response, and recovery efforts will be initiated by the City. 7.2.3. If local resources are not sufficient to meet local needs then inter-local agreements or resources shall be requested through the EOC by OEM. The City may request assistance from Harris County and then the State through the DDC Chairperson in Region 2A. (The City must request assistance from Harris County before requesting assistance from the State.) The EOC, through OEM, serves as the focal point for requesting State and Federal Assistance. 7.2.4. The Texas Department of State Health Services / Radiation Control Program (TDSHS/RLB), as the state radiation control agency, has primary responsibility for the State Radiological Protection Program including emergency response capabilities and subject matter expertise. TDSHS/RLB also provides statewide training for RSO's and Radiological Monitors. TDSHS/RLB must be notified of all radiological incidents. 7.2.5. Additional external resources may be available and requested by the State of Texas in accordance with the Southern Mutual Radiation Assistance Plan (SMRAP). See Section 3.8.5 of The Basic Plan for the specific sequence of events when requesting such assistance. 7.2.6. The federal agency responsible for accidents at nuclear facilities licensed by the State of Texas or incidents involving shipments of radioactive materials licensed by the State is the Nuclear Regulatory Commission (NRC). The US Department of Energy (DOE) and Department of Defense (DOD) have the lead federal role in incidents at their facilities or accidents involving their shipments. Each of these federal agencies in addition to the United States Coast Guard (USCG), the Environmental Protection Agency (EPA), and the National Aeronautics and Space Administration (NASA) may serve as a coordinating agency for DHS. 7.2.7. Refer to the federal Nuclear/Radiological Incident Annex (NRIA) for current guidance on federal coordinating and cooperating agencies.
8. PHASES OF MANAGEMENT 8.1. Mitigation 8.1.1. Establish protocols, operating procedures, or guidelines for Radiological Incidents including assessment, PPE, perimeter controls, decontamination, triage, fatality management, interagency/interjurisdiction coordination, public information communication, and cleanup & waste disposal. 8.1.2. Select and train responders 8.2. Preparedness 8.2.1. Implement training and exercise program.
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8.2.2. Ensure readiness of detection instruments including availability, calibration, functional operability, and charge or battery status. 8.2.3. Establish and maintain resource equipment data-base for managing large-scale radiological incident. 8.2.4. Establish protocols for decontamination. 8.3. Response 8.3.1. This section provides an outline of the response functions that can be anticipated for radiological incidents in order to protect responders and the public, save lives, control radiological exposure, and protect the environment. 8.3.2. Incident detection/discovery for covert events will be from intelligence gained by law enforcement or epidemiological surveillance. Such intelligence will be immediately conveyed for joint law enforcement and epidemiological forensic investigation. TDSHS/RLB and FBI need also be notified and consulted. 8.3.3. When sufficient intelligence has been garnered to hypothesize potential site(s) of exposure risk activate the Radiological Response Team (RRT) to investigate and implement appropriate protective action measures. 8.3.4. Brief RRT on known/unknown hazards, PPE recommendations, dosimetry, time, distance, and shielding control measures and current objectives. 8.3.5. Perform immediate life-saving measures. 8.3.6. Establish perimeter controls to limit exposure risks and control access to the incident site. 8.4. Recovery 8.4.1. Perform continuous area radiation monitoring surveys until no longer necessary. 8.4.2. Sustain parameter control and security until official declared safe to allow public access. 8.4.3. Decontaminate people, equipment, apparatus, facilities as needed, to include those that may have self evacuated to local hospitals after being exposed. 8.4.4. Keep public informed about radiation safety with focus on actions to take to avoid initial or further exposure/contamination. 8.4.5. Assess damage, document, and report to appropriate regulatory or management authorities.
9.
ORGANIZATION & ASSIGNMENT OF RESPONSIBILITIES 9.1.Organization
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9.1.1.
This section provides an outline of the assignment of the functions that can be anticipated for radiological incidents in order to protect responders and the public, save lives, control radiological exposure, and protect the environment.
9.1.2.
The Fire Chief and the Director of HDHHS have responsibility for radiological protection/mitigation, preparedness, response, and recovery measures. Management and coordination of exercise, response, and recovery activities is accomplished by implementing NIMS.
9.1.3.
Once a radiological accident or intentional incident occurs the Incident Commander (IC) assumes responsibility for command and control and is afforded the support of various resources through the EOC. The IC is responsible for coordinating and/or requesting external resources through the City’s EOC liaison. See Appendix 7 and Appendix 8 for details implementing “Protective Actions”.
9.1.4.
The ability and capability to effectively respond to a radiological incident requires a coordinated response by local departments, agencies, and officials, together with representatives of the facility or company responsible for the incident, augmented, in certain circumstances, by state and federal agencies with responsibilities and expertise for radiological incidents.
9.1.5.
Technical assistance for a radiological incident may be provided by the facility, by state and federal agencies, or by industry. See paragraph V.B.6 of this annex for additional information on state and federal assistance.
9.1.6.
For line of successions see Basic Plan, Annex F (Firefighting), Annex N (Direction and Control), and Annex V (Terrorist Incident).
9.2. Assignment of Responsibilities 9.2.1.
Radiation Safety Officer (RSO) / HFD Hazardous-Materials Coordinator 9.2.1.1.
For the City of Houston the Radiological Safety Officer (RSO) is located in the Houston Department of Health and Human Services (HDHHS) and in charge and responsible for the Radiation Response Program (RRP) that occurs on a day-to-day basis.
9.2.1.2.
During an incident involving radiological material the RSO will assist and provide technical support and guidance as needed for managing, monitoring, and reporting as required by regulatory agencies.
9.2.1.3.
Conduct damage assessment with regards to exposure and contamination
9.2.1.4.
Provide monitoring instruments
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9.2.2.
9.2.3.
9.2.1.5.
Establish a comprehensive training program at the local level regarding safety issues, recognition of radiological sources (gamma, alpha, and beta), handling the source and the removal of radiological materials
9.2.1.6.
Provide technical assistance to the Incident Commander (IC)
9.2.1.7.
Provide radiological monitoring at the incident site
9.2.1.8.
Ensure notification made to OEM, DSHS and other agencies as appropriate
9.2.1.9.
Obtain adequate staffing to support incident activities
Houston Fire Department (HFD) 9.2.2.1.
When alerted, will respond, establish incident command, and initiate protective/mitigation measures.
9.2.2.2.
Assist HDHHS for an incident/situation involving a radiological source.
9.2.2.3.
If suspect or confirmed to be intentional or terrorist related immediately notify HPD
9.2.2.4.
Notify OEM and if necessary request activation of EOC
9.2.2.5.
Send HFD liaison to EOC
9.2.2.6.
HFD will establish coordination, management, and mitigation efforts with external stakeholders as needed to support tactical and strategic operations.
9.2.2.7.
Responsible for decontamination of people, equipment, and apparatus known or suspect exposed to radiation source.
9.2.2.8.
Coordinate with HDHHS when transitioning situation from an incident to a recovery phase.
Houston Department Health Services (DHHS) 9.2.3.1.
ANNEX D – RADIOLOGICAL
If situations involving radioactive exposure occur over time and from an unknown source, exposures may only become apparent when people start presenting to area clinics or hospitals with signs and symptoms of radiological exposure. If a radiological exposure is detected in this manner, HDHHS should: 9.2.3.1.1.
Immediately notify HDHHS Radiological Safety Officer (RSO).
9.2.3.1.2.
Notify HFD EMS personnel of incident who is involved transporting patients to area hospitals.
9.2.3.1.3.
Notify HFD HMRT. SEPTEMBER 20, 2011
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9.2.3.1.4.
Notify OEM and provide information with recommendations if need for public announcement/warning.
9.2.3.1.5.
Attempt to determine source location and immediately provide information on radiation to the public and emergency personnel.
9.2.3.1.6.
Inspect food and water supplies for radiation
9.2.3.1.7.
Prepare press release regarding incident with respect to health issues.
9.2.3.1.8.
Evaluate radiation exposures of the public and responders and make recommendations to reduce exposures.
9.2.3.1.9.
Establish short and long term actions for determining and implementing appropriate protective actions for responder, public, livestock, food, irrigation, and drinking water safety.
9.2.4. HPD Supervisor 9.2.4.1.
Advise police officers of potential hazards and/or dangers.
9.2.4.2.
Provide traffic control and secure the area to prevent encroachment.
9.2.4.3.
Establish communication with HFD and other emergency responders of situation.
9.2.4.4.
Provide escort for other support agencies responding to the scene of the incident.
9.2.4.5.
If terrorist related (suspect or known) implement scene control and evidence preservation measure.
9.2.4.6.
Fusion Center engagement as necessary.
9.2.4.7.
Contact OEM; EOC activate if needed; HPD Liaison to EOC (if activated).
9.2.4.8.
Provide access for HPD responders to receive comprehensive Hazardous-Materials (HAZMAT) awareness training.
9.2.5. Metropolitan Medical Response System (MMRS) 9.2.5.1.
Utilize MMRS resources to support local hazardous materials response teams by providing resources and man-power in accordance with the program objectives involving mass casualty and/or mass fatality incident.
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9.2.5.2.
Utilize MMRS resources to support mass care/surge of patients to local and regional healthcare institutes, by providing resources and personnel in accordance with the MMRS objective.
9.2.5.3.
Support HFD and HDHHS as requested during a radiological/nuclear incident/event.
9.2.6. Office of Emergency Management (OEM) 9.2.6.1.
Monitor situation and communicate critical information to key officials and department support staff.
9.2.6.2.
Initiate steps to alert, notify, and warn the public to take appropriate action and safety measures.
9.2.6.3.
Activate EOC and staff accordingly for managing and coordinating city-wide resources.
9.2.6.4.
Initiate as needed activation of Catastrophic Medical Operations Center (CMOC).
9.2.6.5.
Activate MMRS component as needed to support and assist managing hazmat and mass casualty incident (MCI).
9.2.6.6.
Implement appropriate procedures and protocol for resource requisition.
9.2.6.7.
Initiate community notification/warning measures, if needed.
9.2.6.8.
Advise Texas Division of Emergency Management (TDEM), if appropriate.
9.2.6.9.
Acquire if necessary extra replacement instruments from TDH.
9.2.6.10.
See additional details in Basic Emergency Plan, Annex A (Warning), and Annex N (Direction and Control).
9.2.7. Deliberate Acts (Terrorism) 9.2.7.1.
An intentional or deliberate act causing release of radioactive materials is a crime under a number of state and federal laws. Any incident of this type requires immediate reporting to local and state law enforcement agencies.
9.2.7.2.
The Federal Bureau of Investigation (FBI) has lead responsibility for criminal investigations of terrorist acts or terrorist threats involving weapons of mass destruction (WMD), including improvised radiological dispersion
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devices; the Department of Public Safety (DPS) is the lead state agency. 9.2.7.3.
If a release of radiation is believed to be an act of terrorism, we will ensure the incident is reported to both to the Texas Department of Public Safety (DPS) and the FBI. See additional details for managing a terrorist in Annex V, Terrorist Incident Response.
10. DIRECTION, CONTROL, AND COORDINATION 10.1.
Regional Incidents 10.1.1.
The Mayor will establish local policies relating to radiological protection and may provide general guidance for emergency operations.
10.1.2.
Program Management - The Radiological Safety Officer (RSO) is responsible for carry out day-to-day management of the Radiological Response Plan (RPP).
10.1.3.
The Houston Fire Department (HFD) is responsible for sizingup, determining threat, and establishing the incident command and control for managing an incident. In situations (incidents) that occur where HFD is not involved on the front-end, HDHHS RSO will assume and sustain incident command responsibilities until a formal face-to-face transfer of command occurs. The IC is responsible for managing and coordinating the incident.
10.1.4.
All support agencies and personnel will report to the incident command post for briefing and instructions.
10.1.5.
Radio communications will be conducted on the City's current UHF, and 800 MHz. radio systems. Note: THE CITY IS CURRENTLY TRANSITIONING TO NEW RADIO SYSTEM, BUT WILL NOT BE FULLY IMPLEMENTED FOR SOME TIME.
10.2.
Managing Access Restrictions 10.2.1.
If radiological incident is known or suspect to be intentional local law enforcement will initiate investigative and notification of State and Federal agencies. The local Fusion Center will be engaged with handling data and information flow pertaining and related to the incident.
10.2.2.
Public Information networks will be established and managed through the City of Houston Office of Emergency Management. Large-scale incidents involving radiological agent will probably
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require Joint Information Center (JIC) activation. For additional details see Annex I (Public Information).
11. READINESS LEVEL 11.1.
Increased Readiness Conditions for the City are set forth in section 3.2.2 of the Basic Plan. The following shall apply.
11.2.
Readiness Level IV – Normal Conditions
11.3.
11.2.1.
See the mitigation and preparedness activities in Section 9, 9.1.
11.2.2.
Routine operations
11.2.3.
Perform routine maintenance and testing of backup systems (i.e. generators, networks)
11.2.4.
Develop and implement ongoing training and exercise program for emergency preparedness, response, and recovery.
Readiness Level III – Increased Readiness (This is the department’s standard operating condition June 1 – November 30.) 11.3.1.
Review plans and procedures.
11.3.2.
Inform key fire department personnel and first responders of situation.
11.3.3.
Monitor the situation.
11.3.4.
Check equipment readiness and correct deficiencies.
11.3.5.
Check emergency supply status and fill shortfalls.
11.3.6.
Review and update as necessary the employee notification process as well as employee duties, assignments, and Tier designations.
11.3.7.
Review equipment inventories and status and make necessary arrangements with Fleet Maintenance and/or vendors to expedite pending repairs to priority equipment (fire apparatus, generators, monitoring equipment, communication, etc.).
11.3.8.
Maintain regular testing of all communications systems.
11.3.9.
Review inventory of emergency supplies and materials necessary to meet the threat of the domestic incident. Re-stock supplies as necessary to support the emergency situation.
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11.3.10. Maintain regular testing of auxiliary back-up or support power supplies. 11.3.11. Follow procedures for emergency fuel ordering and reporting of quantities on hand as outlined in department’s Fuel Management Plan. 11.3.12. Assure all emergency SOPs and key personnel contact information is up-to-date and current Review needs for the hardening and protection of physical facilitates. 11.3.13. Prepare and/or implement radiological monitoring if greater than normal threat of a radiological incident exists. 11.3.14. Initiating conditions may include but not limited to the following: 11.3.14.1. Radioactive source missing in our region, 11.3.14.2. notification that a significant radioactive shipment will be transiting our area, or 11.3.14.3. a significant change in the Homeland Security Threat Level due to a radiological threat. 11.3.15. Ensuring the hazardous materials response team (if available) is aware of the situation and prepared to respond if necessary. 11.4.
Readiness Level II – High Readiness 11.4.1.
11.4.2.
May be appropriate if there is an increased risk of a radiological incident to include but not limited to the following: 11.4.1.1.
A significant radiological shipment is transiting through our area.
11.4.1.2.
A radioactive source is missing in our or near by jurisdiction.
11.4.1.3.
Notification of a significant change in the Homeland Security Threat Level due to a specific radiological threat.
The Director will brief Deputy Directors and Command Staff on the threat and potential of the domestic incident and its impact to the Department and Divisions.
11.4.3. The Deputy Directors will begin making preparations with their divisional staffs.
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11.4.4.
Managers and supervisors will begin making preparations with their employees, including shift assignments.
11.4.5.
Alerting personnel for possible emergency duty and deploying personnel and equipment to investigate incidents.
11.4.6.
Off-duty personnel will be contacted as to reporting instructions. All voluntary leaves (vacation, etc.) will be evaluated.
11.4.7.
Correct any deficiencies in equipment status or material supplies.
11.4.8.
All fuel tanks should now be topped off according to Emergency Fuel Ordering Procedures.
11.4.9.
Deputy Directors will have their respective Division Emergency Centers prepared for activation.
11.4.10. The Emergency Management Coordinator will have the DEC prepared for activation and continue monitoring situation. 11.4.11. Increase short-term readiness of equipment if possible. 11.4.12. Review inter-local agreements and contracts for resource support and alert potential resource providers of possible emergency operations. 11.4.13. Identify personnel to staff the ICP and EOC. 11.4.14. Checking equipment and increasing short-term readiness if possible. 11.4.15. Issuing public warning and providing public information if necessary. 11.5.
Readiness Level I – Maximum Readiness 11.5.1.
May be appropriate if there is an increased risk of a radiological incident to include but not limited to the following: 11.5.1.1.
A significant possibility of a radiological release.
11.5.1.2.
Missing radioactive source being located in the local area.
11.5.1.3.
Activation of radiological alarms at a landfill screening point.
11.5.1.4.
An incident at a facility licensed to use radiological materials.
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11.5.1.5.
Notification of a significant change in the Homeland Security Threat Level due to a specific radiological threat addressing this jurisdiction or facilities possessing radioactive materials.
11.5.1.6.
Level 1 readiness actions may include: 11.5.1.6.1.
Investigating the situation and partially or fully activating the EOC to monitor it.
11.5.1.6.2.
Placing first responders in alert status; placing off-duty personnel on standby.
11.5.1.6.3.
Advising appropriate state and federal agencies.
11.5.1.6.4.
Preparing to issue and issuing public warning if it becomes necessary.
11.5.1.7.
All Department personnel have been briefed on the domestic incident that is now imminent or already occurred.
11.5.1.8.
The HFD Desk at the HEC is fully operational and staffed.
11.5.1.9.
The HFD Department Operations Center is fully operational and staffed.
11.5.1.10. All Division Emergency Centers are fully operational and staffed. 11.5.1.11. Designated departmental personnel are in the HEC, DOC and DEC’s. 11.5.1.12. All personnel and equipment are located and/or staged at their assigned locations. 11.5.1.13. Implement plans to protect government facilities and equipment. 11.5.1.14. Advise resource suppliers of situation. 11.5.1.15. Continue monitor situation and respond as incident dictates.
12. ADMINISTRATION & SUPPORT 12.1.
Annex Reviewing & Exercising
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12.2.
12.3.
12.1.1.
The Fire Chief (HFD) and Director of Department of Health Human Services (HDHHS) are responsible for reviewing and evaluating Annex D (Radiological) either through actual incidents/emergencies or during exercise events. This Annex should be reviewed annually at a minimal and revised in accordance to the State’s revision 5-year cycle.
12.1.2.
Training and exercise to prepare for radiological incidents/emergencies is a crucial component of planning and preparedness. Training and exercise activities related to radiological/nuclear should be developed and implemented using the Homeland Security Exercise Evaluation Plan (HSEEP) format. For more details see Basic Plan, section 2.3, 2.3.1.
Maintenance of Monitoring Equipment 12.2.1.
A continuous training program is provided through a combination of Federal, State (TDH), regional, and local efforts (See Appendix 4).
12.2.2.
Following all radiological incidents the lead agency will hold a post-incident critique (hot wash) and develop a formal afteraction report.
12.2.3.
EOC prepares and disseminates a periodic situation report to state and federal agencies, through the DDC, until situation is resolved.
Record Management 12.3.1. The on-scene HFD hazardous materials Officer is responsible for preparing an event log that maintains an appropriate time line of activities and actions associated with managing the incident. In addition, documentation should include cause of incident, incident critique, and damage assessment and conclusion. 12.3.2. Documentation records must be protected and maintained according to retention policies. All documentation related to a hazardous materials incident must be protected and placed in a location for later recall if needed. See Basic Plan sec. 3.7.1 and 3.7.3 for additional details on record keeping during and following emergency operations.
13.
ANNEX DEVELOPMENT & MAINTENANCE 13.1.
Development
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13.1.1.
13.2.
The Annex D (Radiological) Plan must be revised through a formal process every five years. 418.043(4) of the Government Code provide that the Texas Division of Emergency Management (TDEM) of the State of Texas shall review and approve this Annex at a minimum once every five years. Refer to Basic Plan 1.5 for additional details on the development and revision process.
Maintenance 13.2.1.
The Fire Chief (HFD) and Director of Department Health and Human Services (HDHHS) are responsible for revising this Annex plan and can revise it at any point if identified being necessary (e.g. gaps/weaknesses identified following an incident/disaster; organizational or operational changes, local / state / federal legislative changes, etc).
13.2.2.
The Office of Emergency Management (OEM) will work closely to assist with HFD and HDHHS with coordinating the revision.
13.2.3.
For additional details pertaining to annex revision and maintenance see Basic Plan, section 1.5.1.
14. REFERENCES 14.1.
U.S. Department of Transportation and Transport, Emergency Response Guidebook
14.2.
FEMA, Guide for All-Hazard Emergency Operations Planning, SLG-101
14.3.
Title 25, Texas Administrative Code, Chapter 289, Texas Regulations for Control of Radiation
14.4.
City of Houston Basic Emergency Management and Annex Plans (January 2010)
14.5.
U.S. Department of Homeland Nuclear/Radiological Incident Annex Framework (NRF) (2008)
14.6.
U.S. Radiological Dispersal Device Playbook, Washington: Office of the Assistant Secretary for Preparedness and Response (November 23, 2010), www.phe.gov/Preparedness/planning/playbooks/rdd/Pages/default.aspx
Security (DHS), FEMA, of the National Response
15. APPENDICES APPENDIX 1 APPENDIX 2 ANNEX D – RADIOLOGICAL
Radiological Monitoring Instrument Locations Decontamination Operations SEPTEMBER 20, 2011
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APPENDIX 3 APPENDIX 4 APPENDIX 5 APPENDIX 6 APPENDIX 7 APPENDIX 8 APPENDIX 9
Radiation Dose Rate Perimeter Zones Radiological Incident Operations Conceptual Triage Systems Radiological/Nuclear Incident Radiological Response Training Protective Actions Victim Handling & Emergency Scene Flow Notifications
FIGURE 1 FIGURE 2 FIGURE 3
Radiation Dose Rate Perimeter Zones Conceptual Triage Systems Radiological/Nuclear Incident Victim Handling & Emergency Scene Flow
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APPENDIX 1 TO ANNEX D RADIOLOGICAL MONITORING INSTRUMENTS
RADIOLOGICAL MONITORING EQUIPMENT INFORMATION IS KEPT AND MAINTAINED ON FILE IN THE CITY OF HOUSTON OFFICE OF EMERGENCY MANAGEMENT AND THE RESPECTIVE CITY DEPARTMENTS RESPONSIBLE FOR MANAGING AND MITIGATING RADIOLOGICAL/NUCLEAR INCIDENTS.
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APPENDIX 2 TO ANNEX D DECONTAMINATION AND RECOVERY OPERATIONS I.
Tasks A.
HFD The Fire Chief will:
B.
1.
Ensure that emergency response personnel have access and opportunity to training in radiological response and recovery.
2.
Ensure provisions to provide monitoring, treatment, and decontamination operations for personnel and equipment and personnel.
3.
Follow up post-incident to evaluate incident, actions taken, document, maintain and reporting requirements.
OEM Serve as the coordinating agency
C.
HDHHS The Director will:
D.
1.
Ensure that personnel operating decontaminating and recovery equipment are not overexposed to radiation.
2.
Analyze damage to water and sanitation facilities and make an assessment of corrective actions needed.
3.
Assist HFD with decontamination activities.
HPD The Police Chief will: 1. 2
Provide necessary personnel to maintain area security as requested by the IC. Develop a SOG for the HPD
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APPENDIX 3 TO ANNEX D RADIATION DOSE RATE PERIMETER ZONES
Figure 1 Radiation Dose Rate Perimeter Zones Source: United States. Radiological Dispersal Device Playbook: Washington: Office of the Assistant Secretary for Preparedness and Response, 2010.
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APPENDIX 4 TO ANNEX D RADIOLOGICAL INCIDENT OPERATIONS I.
Tasks A.
Incident situations where radioactive materials are involved and the HFD responds, the IC may request HFD OEC to: 1.
Notify OEM of the incident. Provide them with information and needs, if any, of the IC. Keep OEM informed of any changes
2.
If persons become contaminated with radiation, notify Emergency Medical Services (EMS)
3.
Report the incident to the HDHHS and the TDH immediately and be prepared to provide the following information: a. b. c. d. e.
f. g. B.
Location of incident Extent of magnitude of the problem If there are any injuries Name of the carrier or company. Type of radioactive material present (determined by shipping papers located in driver’s compartment if possible to obtain) Amount of radioactive material in curies or becquerels. Physical form of material (liquid, solid, or gaseous).
If a radiological hazard exists, the Incident Commander (IC) will coordinate and manage the situation until completely mitigated and no longer a threat. The IC will: 1. 2. 3.
4. 5. 6.
7. 8.
Establish a safe area where radiation does not exceed background. If radioactive material is escaping, take steps to contain the material in as small an area as possible. Ensure that appropriate protective equipment, instruments, antidotes and clothing is made available to perform assigned tasks during a hazardous chemical or radiological environment. Establish control of the incident scene and permit only necessary personnel to enter. Maintain shelter areas free from contamination. Record names, addresses and telephone numbers of persons present at the incident site for future reference and the length of time persons are at specific location at the site. Monitor the removal of contaminants and clean-up of affected area Declare "All Clear" when radiation levels decrease to normal background levels.
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II.
DECONTAMINATION ACTIONS: Actions to take if any persons are suspected of being contaminated: A. B.
III.
Determine if any individuals are contaminated by following standard instructions. If injury from radiological source is life threatening, initiate emergency medical treatment immediately. Take precautions to prevent exposure and/or the spread of contamination to other individuals and equipment.
TRAINING EXERCISES The procedures for dealing with radiological incidents should be exercised.
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APPENDIX 5 TO ANNEX D CONCEPTUAL TRIAGE SYSTEM
Figure 2: Conceptual Triage System Diagram of a conceptual triage system near the affected area indicating that close to the blast site, around the perimeter of the High Radiation zone or “inner radiation boundary” RTR1 site(s) will be set up for victims from the immediate blast site with major contamination, injuries, and/or trauma.
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APPENDIX 5 TO ANNEX D CONCEPTUAL TRIAGE SYSTEM Figure 2: Conceptual Triage System (Continued) Responders may only dwell for a limited time during radiological or nuclear incidents. o RTR2 site(s) will be set up near the “outer radiation zone” where responders’ time will still be carefully monitored. Most ambulatory victims will be assessed, and those with ARS (Acute Radiation Syndrome) may receive immediate care, and others will be directed as appropriate to Evacuation Centers and predetermined Medical care sites (MC) for treatment or Assembly Centers (AC) limited care and transport to nearby facilities and victim tracking. o RTR3 sites will be set up outside the outer perimeter and act as collection sites for affected persons leaving the blast area; o RTR3 sites will provide paramedic acute care, stabilize victims and direct them as appropriate to MCs, ACs, Evacuation Centers, or transport them to outside facilities. •
RTR sites are functional sites that define TRiage, TReatment, and TRansport functions. Time in zone may be limited by radiation.
•
RTR Sites Form Spontaneously: Victims immediately in the blast site may have injury from the blast, fairly heavy contamination from radiation or combined injury (physical trauma and burn plus radiation). The radiation dose is likely to be limited as there is no detonation effect as with an IND but rather radiation is accumulated over time.
•
RTR Sites: Will be identified “on the fly” by responders and coordinated with the Emergency Operations Center (EOC). Health physicists and other radiation protection specialists will provide subject matter expertise to help interpret the readings obtained by emergency responders.
•
RTR1 Sites: Will have limited time for emergency workers but the high dose zone will be small and most likely a few hundred meters in diameter.
•
RTR2 Sites: These will be near the plume/footprint zone, recognizing that the plume will be very short‐lived. While there may be some re‐suspension of radioactive material most of the residual radiation will be a footprint on the ground and not a plume.
•
RTR3 Sites: Collection points with radioactivity screening (using survey meters) to identify those victims requiring decontamination and/or medical management.
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APPENDIX 5 TO ANNEX D CONCEPTUAL TRIAGE SYSTEM (CONTINUED)
•
MC (Medical Care) sites will be the focus of medical management. It is likely that the local hospital network will have adequate resources although regional facilities may be needed. Some hospitals may be off line due to the location of the RDD and plume. Expert centers for trauma or burn care may be needed beyond the region. Acute Radiation syndrome may occur depending on the size of the device. Management and decorporation treatments will be managed locally or possibly through the National Disaster Medical System, the Radiation Injury Treatment Network and/or other expert centers.
•
AC (Assembly Centers) will be used for displaced persons and for those with minor injury.
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APPENDIX 6 TO ANNEX D RADIOLOGICAL RESPONSE TRAINING 1.
The City of Houston Radiological Officer (RO) is responsible for coordinating the procedures in this appendix.
2.
The purpose of this appendix is to provide guidelines and procedures for maintaining an adequate number of personnel trained to deal with radiological accidents and to maintain radiation detection instruments in operational condition. a.
Personnel training 1)
The City of Houston will have 10 individuals trained as radiological officers.
2)
TDH/BRC provides training for Radiological Officers and radiological monitors. Courses available include: a)
Fundamentals Course for Radiological Monitors – 8 hours
b)
Advanced Course for Radiological Monitors – 32 hours
Additional training is also available from the Federal Emergency Management Agency (FEMA). 3)
Personnel trained in radiological protection and decontamination techniques should receive the FEMA-approved refresher training at least every three (3) years
4)
The Houston Fire Department/Hazmat Response Team shall have at least one individual trained in radiological response and on the use of radiation detection instruments on each shift.
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APPENDIX 7 TO ANNEX D PROTECTIVE ACTIONS I.
Short Term A.
If it appears that a release of radiological materials has occurred or is possible, the IC is responsible for determining and implementing appropriate protective actions for the public in the immediate area of the incident. The IC is also responsible for advising personnel responding to the incident of the threat and determining requirements for personal protective equipment. Responders who lack hazardous materials training and appropriate personal protective equipment should not be committed to radiological incidents.
B.
If it appears that a radiological release has or may affect areas beyond the incident site, the IC should coordinate with the EOC to agree upon a division of responsibilities for warning the public, making required notifications, implementing protective actions for the public in areas beyond the incident site, and obtaining additional resources and technical assistance. 1)
II.
Suitable initial public protective actions for a radiological incident may include evacuation and sheltering in place. Appendix 4 to Annex Q, Hazardous Materials & Oil Spill Response provides additional information on selecting public protective measures.
Long Term TDH/BRC will normally conduct a detailed incident assessment, identify affected areas through radiological monitoring, recommend follow-on protective measures to protect public health, and oversee recovery operations. Long-term protective measures may be implemented by TDH or other state regulatory agencies and may include controls on the movement and use of foodstuffs, milk, and feed from contaminated areas and on the use of drinking water from contaminated sources.
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APPENDIX 8 TO ANNEX D VICTIM HANDLING & EMERGENCY SCENE FLOW FIGURE 3 Figure 3: Victim Handling Flow at Emergency Scene • Activate additional resources (e.g. HPD, HDHHS, CMOC, MMRS, JIC, other Annexes, • request state (TDEM and TDSHS) and federal resources, etc) as necessary to support response operations (e.g. traffic flow, evacuation, triage, victim & responder decontamination, assembly & sheltering, transport, medical care, area decontamination, public information, technical assistance). • Monitor/assess victims for contamination at points of exit, shelters, medical care or treatment centers. • Characterize the incident including performing plume modeling and determining the radio‐nuclides involved. • Inform the public about radiation hazards and control measures. • Contact TDSHS/RLB for technical assistance in managing and mitigating radiation involved incident. • Conduct human and veterinary epidemiological surveillance. • Manage human and animal fatalities including addressing biohazards and radiological contamination issues. • Provide disaster mental health services to victims and responders. Recovery • This section provides an outline of the recovery functions that can be anticipated for radiological incidents in order to monitor impact and return to pre‐incident conditions. • Perform area radiation monitoring surveys and mapping to determine absolute scope of incident, to verify safety of clean areas, and to identify areas/hot spots where additional decontamination or clean‐up is required. • Perform decontamination or clean‐up procedures on people, equipment, facilities, property, and the environment as needed. • Provide disaster mental health services to victims and responders. • Perform appropriate waste (including radioactive waste) clean‐up and disposal measures. • Inform public about radiation safety and remediation processes being executed. • Assess damage and report findings to Office of Emergency Management (OEM)
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APPENDIX 9 TO ANNEX D NOTIFICATIONS I.
Local Notification The IC will provide information on the incident to local officials through the City’s Office of Emergency Management (OEM)/Emergency Operations Center (EOC) for making an initial assessment of the situation and to determine the chances and likelihood of a release of radiological materials. If it appears that radiological materials have been released into the environment or such a release appears likely, the EOC will be activated to support the incident response.
II.
State and Federal Notifications Houston Emergency Management, or the EOC, if activated, shall be responsible for making required emergency notifications to state and federal agencies. Radiological releases should be reported to: A.
The local Department of Public Safety (DPS) office in Region 2A, which will relay information to DPS elements and the Division of Emergency Management.
B.
The Bureau of Radiation Control of the Texas Department of Health.
C.
The State Environmental Hotline.
D.
The National Response Center.
If incident involves a deliberate release of radiological materials, the FBI office in Houston shall be notified.
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