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OCR for page 71
APPENDIX D
Additional Details on
Capability Assessment
Development of the Emergency Response
Capability Approach
Much has been done by federal and state governments since 2002 to standardize the resource
typing and definitions of all existing and required capabilities necessary for homeland security
and emergency management operations. The Department of Homeland Security's (DHS) Federal
Emergency Management Agency's (FEMA) publication 508-4 Typed Resource Definitions for Fire
and Hazardous Materials Resources (2005) provides three types of hazmat entry teams, based upon
a combination of existing standards and based against identified hazards identified at the national
level. It is important to note that the Typed Resource Definitions contained within FEMA 508-4
address only National Tier One assets which are utilized under the Emergency Management Assis-
tance Compact (EMAC). These Tier One assets are limited to only the most capable resources
maintained by select local, state, and/or federal sponsors, such as New York City (NY), Houston
(TX), Los Angeles (CA), and other equivalent areas with a sufficient tax base for establishing,
training, certifying, equipping, exercising, and maintaining teams and associated personnel on
full-time or near full-time availability. The methodology used for this Guide incorporates Tier
Two standards for Hazmat Response Teams at the state and local levels. These assessments
have tended to focus on planning effective emergency responses to WMD attacks on large
metropolitan areas. The focus here is on the smaller communities grouped under Tier 5, fewer
than 10,000 individuals, in the draft DHS document.
Based upon a review of the National Planning Scenarios and the National Response Framework
Incident Annexes, the hazards identified at the national level predominately focus on terrorist or
criminal use of specific toxic or dangerous materials during an intentional act, instead of the acci-
dental releases associated with the inter/intra-state, multimodal storage and/or transportation of all
hazmat. In addition, these federal efforts, such as FEMA 508-4, do not include resource typing cri-
teria for the entire resource set necessary to successfully manage a release of hazmat in storage, use,
or transportation. For example, FEMA 508-4 provides typing criteria for the Hazardous Materials
Response (Emergency Support Function #10) Hazmat Entry Team (pages 1317) without the inclu-
sion of parallel, coordinated typing criteria for casualty decontamination (reference to decontami-
nation within FEMA 508-4 is solely for decontamination of the entry team personnel), incident
command, and similar supporting elements. A review of the FEMA 508 Typed Resource Definitions
series fails to locate any equivalent effort for casualty decontamination; this determination is sup-
ported by notes in the draft document listed below requiring the development of a typed resource
or mission package to support incident assessment, casualty rescue, and casualty decontamination.
DHS (2009) is also in the process of developing a Target Capabilities List (TCL) specific to the
Response Capability [for] [Weapons of Mass Destruction] WMD/Hazardous Materials (Hazmat)
Rescue. In the existing draft document, the TCL employs a five-class risk system based predominately
upon jurisdictional population with additional risk factors for various types and kinds of storage,
D-1
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D-2 A Guide for Assessing Community Emergency Response Needs and Capabilities for Hazardous Materials Releases
use, and transportation capabilities. These risk factors do not address pipelines, maritime facilities
or transportation, or nonchemical (e.g., biological, radiological, explosive, etc.) storage facilities
or industrial manufacturing or use of such nonchemical hazard classes, except under the term
"large quantities of hazardous materials." In developing the methodology for this Guide, the use of
two systems defined by "class," such as the 2008 Emergency Response Guidebook and the draft
TCL, poses additional challenges for successful employment and ease of use for the methodology.
Therefore, the methodology used in this Guide does not represent verbatim application of
these approved or draft documents, but rather incorporates the applicable, approved elements
of these documents into the methodology. Risk management is often strongly influenced by the
perceived political and social implications of a particular methodology as well as anticipated
reactions and bias by specific user communities. This methodology is focused on the scope
identified within the project charter to address all hazmat response operations to all identified
hazard classes across all applicable modes of transportation and use, which is a scope not addressed
by any single regulation, guide, or document approved at the Federal level.
Calculating the Risk Metric Equation
Table D-1 shows the further development of the terms in the Risk Metric equation. In this
case, the ERC value has been calculated and added to each of the hazard scenarios.
Table D-1. Further development of the risk metric equation--adding the capability value.
Vulner- Consequence
Hazard [H] Capability Response Risk
ability [C]*
[ERC] Time [RTF] Metric
Facility or Route Description [V] Pop. Env.
Facility Z Fire (ethylene) 3 4 2 1
Roads x, y Fire (gasoline) 3 2 1 4
Facility Z Explosion (ethylene) 2 3 2 1
Railroad s BLEVE (ethylene) 4 2 1 4
Facility Z Toxic Gas (chlorine) (L) 3 4 1 3
Facility Z Toxic Gas (chlorine) (S) 4 2 2 1
Railroad s Toxic Gas (chlorine) (L) 3 5 1 3
Railroad s Toxic Gas (chlorine) (S) 4 3 1 1
Roads x, w Toxic Gas (ammonia) (L) 1 4 2 4
Roads x, w Toxic Gas (ammonia) (S) 2 2 1 4
Roads x, u Toxic Liquid (37% HCl) (L) 2 2 2 4
Roads x, u Toxic Liquid (37% HCl) (S) 3 1 1 4
(S) small release; (L) large release.
