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Appendix J Reprinted Interim Report 126
REPRINTED INTERIM REPORT 127 Interim Report on Methodological Improvements to the Department of Homeland Securityâs Biological Agent Risk Analysis Committee on Methodological Improvements to the Department of Homeland Securityâs Biological Agent Risk Analysis Board on Mathematical Sciences and Their Applications Division on Engineering and Physical Sciences
128 REPRINTED INTERIM REPORT THE NATIONAL ACADEMIES PRESSâ 500 Fifth Street, N.W.â Washington, DC 20001 NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the committee responsible for the report were chosen for their special competences and with regard for appropriate balance. This study was supported by Contract No. HSHQDC-06-C-00046 between the National Academy of Sciences and the Department of Homeland Security. Any opinions, findings, conclusions, or recommendations expressed in this publication are those of the author(s) and do not necessarily reflect the views of the organizations or agencies that provided support for the project. Additional copies of this report are available from the National Academies Press, 500 Fifth Street, N.W., Lockbox 285, Washington, DC 20055; (800) 624-6242 or (202) 334-3313 (in the Washington metropolitan area); Internet, http://www.nap.edu. Copyright 2007 by the National Academy of Sciences. All rights reserved. Printed in the United States of America
REPRINTED INTERIM REPORT 129 The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences. The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is au- tonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Wm. A.Wulf is president of the National Academy of Engineering. The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examina- tion of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine. The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academyâs purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the Na- tional Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Wm. A. Wulf are chair and vice chair, respectively, of the National Research Council. www.national-academies.org
130 REPRINTED INTERIM REPORT COMMITTEE ON METHODOLOGICAL IMPROVEMENTS TO THE DEPARTMENT OF HOMELAND SECURITYâS BIOLOGICAL AGENT RISK ANALYSIS GREGORY S. PARNELL, U.S. Military Academy, Chair DAVID BANKS, Duke University LUCIANA BORIO, University of Pittsburgh GERALD BROWN, Naval Postgraduate School L. ANTHONY COX, JR., Cox Associates JOHN GANNON, BAE Systems ERIC HARVILL, Pennsylvania State University HOWARD KUNREUTHER, University of Pennsylvania STEPHEN MORSE, Columbia University MARGUERITE PAPPAIOANOU, University of Minnesota STEPHEN POLLOCK, University of Michigan NOZER SINGPURWALLA, George Washington University ALYSON WILSON, Los Alamos National Laboratory Staff SCOTT WEIDMAN, Director, Board on Mathematical Sciences and Their Applications NEAL GLASSMAN, Senior Staff Officer, Board on Mathematical Sciences and Their Applications KERRY BRENNER, Senior Staff Officer, Board on Life Sciences BARBARA WRIGHT, Administrative Assistant
REPRINTED INTERIM REPORT 131 BOARD ON MATHEMATICAL SCIENCES AND THEIR APPLICATIONS C. DAVID LEVERMORE, University of Maryland, Chair MASSOUD AMIN, University of Minnesota MARSHA J. BERGER, New York University PHILIP A. BERNSTEIN, Microsoft Corporation PATRICIA F. BRENNAN, University of Wisconsin-Madison PATRICK L. BROCKETT, University of Texas at Austin DEBRA ELKINS, General Motors Corporation LAWRENCE CRAIG EVANS, University of California at Berkeley JOHN F. GEWEKE, University of Iowa DAVID HENDRICKS, UBS AG JOHN E. HOPCROFT, Cornell University CHARLES M. LUCAS, AIG (retired) CHARLES MANSKI, Northwestern University JOYCE R. McLAUGHLIN, Rensselaer Polytechnic Institute JILL PORTER MESIROV, Broad Institute ANDREW M. ODLYZKO, University of Minnesota JOHN RICE, University of California at Berkeley STEPHEN M. ROBINSON, University of Wisconsin-Madison GEORGE SUGIHARA, Scripps Institution of Oceanography, University of California at San Diego EDWARD J. WEGMAN, George Mason University LAI-SANG YOUNG, New York University Staff SCOTT WEIDMAN, Director NEAL GLASSMAN, Senior Staff Officer BARBARA WRIGHT, Administrative Assistant For more information on BMSA, see its Web site at http://www7.nationalacademies.org/ bms/, write to BMSA, National Research Council, 500 Fifth Street, N.W., Washington, DC 20001, call (202) 334-2421, or send e-mail to firstname.lastname@example.org.
132 REPRINTED INTERIM REPORT Acknowledgments This report has been reviewed in draft form by individuals chosen for their diverse per- spectives and technical expertise, in accordance with procedures approved by the National Research Councilâs Report Review Committee. The purpose of this independent review is to provide candid and critical comments that will assist the institution in making its published report as sound as possible and to ensure that the report meets institutional standards for objectivity, evidence, and responsiveness to the study charge. The review comments and draft manuscript remain confidential to protect the integrity of the deliberative process. We wish to thank the following individuals for their review of this report: John Bailar III, University of Chicago, Gerald Dinneen, Lexington, Massachusetts, Randall Larsen, The Institute for Homeland Security, Stephen Robinson, University of Wisconsin, Harvey Rubin, University of Pennsylvania, and Lawrence Wein, Stanford University. Although the reviewers listed above have provided many constructive comments and suggestions, they were not asked to endorse the conclusions or recommendations nor did they see the final draft of the report before its release. The review of this report was overseen by Frank Stillinger, Princeton University. Appointed by the National Research Council, he was responsible for making certain that an independent examination of this report was carried out in accordance with institutional procedures and that all review comments were carefully considered. Responsibility for the final content of this report rests entirely with the authoring committee and the institution. The committee also acknowledges the valuable contribution of the following individuals, who provided input at the meeting on which this interim report is based: James Petro, White House Homeland Security Council, Adam Rose, Pennsylvania State University, Detlof von Winterfeldt, University of Southern California, and Staff of the Battelle Memorial Institute, Columbus, Ohio.
REPRINTED INTERIM REPORT 133 Contents EXECUTIVE SUMMARY 134 METHODOLOGICAL IMPROVEMENTS TO THE DEPARTMENT OF HOMELAND SECURITYâS BIOLOGICAL AGENT RISK ANALYSIS 137 Background, 137 The DHS Bioterrorism Risk Assessment, 139 Recommendations, 141 Summary, 146 References, 146 APPENDIX 147
134 REPRINTED INTERIM REPORT Executive Summary In recognition of potential bioterrorist threats, President George W. Bush issued Home- land Security Presidential Directive 10 (HSPD10), âBiodefense for the 21st Century,â on April 28, 2004. This directive, as well as the National Strategy for Homeland Security, published by the White House Office of Homeland Security in 2002, required assessments of the biological weapons threat to the nation and assigned the Department of Homeland Security (DHS) responsibility for conducting these assessments, in coordination with other appropriate federal departments and agencies. The first DHS bioterrorism risk assessment was completed on January 31, 2006, and the report documenting the assessment was pub- lished on October 1, 2006. THE COMMITTEEâS PRELIMINARY ASSESSMENT The National Research Council (NRC) was asked by DHS to carry out a study to rec- ommend improvements to the methodology used for DHSâs first bioterrorism risk assess- ment. The NRC study will issue two reports: interim (this report), focused on near-term improvements that can begin in federal Fiscal Year 2007 (FY2007), and final, to recommend longer-term improvements. On August 28-29, 2006, the NRC Committee on Methodological Improvements to the Department of Homeland Securityâs Biological Agent Risk Analysis met with representa- tives of DHS, its National Biodefense Analysis and Countermeasures Center (NBACC), Battelle Memorial Institute, the White House Homeland Security Council, and the Home- land Security Center for Risk and Economic Analysis of Terrorism Events (CREATE). The briefings at this meeting described a probabilistic risk assessment (PRA) of 28 bioagents. For each of the 28 pathogens, it used a 17-step event-tree analysis of paths (sequences of events and actions) that could lead to the deliberate exposure of civilian populations. The recommendations and discussion below are based solely on those briefings; DHSâs bioter- rorism risk assessment was not made available to the committee in time for this interim report. â Homeland Security Presidential Directive 10, âBiodefense for the 21st Century,â April 28, 2004, available at http://www.fas.org/irp/offdocs/nspd/hspd-10.html. Accessed Nov. 1, 2006. â See www.dhs.gov/xlibrary/assets/nat_strategy_hls.pdf. Accessed Nov. 1, 2006. â Bioterrorism Risk Assessment. 2006. Biological Threat Characterization Center of the National Biodefense Analysis and Countermeasure Center. Washington, D.C.
REPRINTED INTERIM REPORT 135 This interim report provides DHS with overall near-term guidance and direction for the further development of its risk analysis models. The committeeâs final report will address longer-term issues in the development of risk analysis capabilities for DHS. Because the topics discussed here will be studied in more depth and with a view toward the longer term, the committeeâs final report will be more detailed and may modify the conclusions presented here. The committee is confident, however, that the recommendations included in this interim report are appropriate and necessary in the near term. The committee recognizes that the development of this comprehensive suite of tech- niques used for the PRA is a logical extension of previous risk analysis methods used for natural and technological hazards and engineering design. The implementation of the selected PRA framework appears, for the most part, to be consistent with well-accepted practice in other fields of risk analysis such as nuclear reactor safety and chemical safety. The committee also notes that DHS and its NBACC have sought ways to refine and improve this new capability. THE COMMITTEEâS INTERIM RECOMMENDATIONS FOR FY2007 Based on its August 28-29, 2006, briefings, the committeeâs main concerns are about the overall purpose and directions of DHSâs risk analysis, the challenges involved in structuring and predicting the actions of determined adversaries, and the need to provide policy mak- ers with a sound foundation for DHSâs ongoing risk analyses. Following are three critical interim recommendations. Recommendation 1: DHS should establish a clear statement of the long-term purposes of its bioterrorism risk analysis. A clear statement of the long-term purposes of the bioterrorism risk analysis is needed to enunciate how it can serve as a tool to inform risk assessment, risk perception, and especially risk-management decision making. Criteria and measures should be specified for assessing how well these purposes are achieved. Key issues to be addressed by such a statement should include the following: who the key stakeholders are; what their short- and long-term values, goals, and objectives are; how these values, goals, and objectives change over time; how the stakeholders perceive the risks; how they can communicate their con- cerns about these risks more effectively; and what they need from the risk assessment in order to make better (more effective, confident, rational, and defensible) resource-allocation decisions. Other important issues are who should perform the analyses (contractors, govern- ment, both) and how DHS should incorporate new information into the analyses so that its assessments are updated in a timely fashion. Recommendation 2: DHS should improve its analysis of intelligent adversaries. Event-tree methodology was not developed to model the possible actions of intelligent adversaries. Traditional event-probability assessment and elicitation techniques for these assessments are not sufficient for modeling the actions of intelligent adversaries made in response to their opponentsâ defensive actions and/or in response to initial successes or failures in their own plan execution. Alternative techniquesâincluding red teams (i.e., individuals, including both technologists and those with experience in targeting and strat- â See,for instance, http://www7.nationalacademies.org/aseb/stamatelatos_nasa_presentation.pdf and http:// www.ans.org/pubs/magazines/nn/docs/2000-3-2.pdf. Accessed Nov. 1, 2006.
136 REPRINTED INTERIM REPORT egy, whose purpose is to simulate adversarial decision making) and attack-preference, decision-tree, attack-tree, or attack-graph modelsâmight be more suitable to complement elicitation. Recommendation 3: DHS should increase its risk analysis methodologyâs emphasis on risk management. It is unclear how the event-tree probabilistic risk assessment will support DHSâs design and evaluation of alternative risk management strategies. The computational engine be- ing developed by Battelle does not permit, let alone encourage, risk managers to explore âif resource allocation, then probable consequenceâ scenarios for evaluating alternative risk management strategies. DHS needs to determine how strategies involving specific investments of resources in protection and countermeasures translate to changes in risk and impact terrorist plans and actions. Moreover, the model should have an interface and visualization component that makes its results and limitations easier to understand and be used by decision makers. The committee encourages DHS to continue to build on, refine, and improve the probabi- listic risk assessment foundation already laid down. The committee will continue to pursue these and additional topics in its review over the coming year. â Attack trees and attack graphs are modeling techniques for understanding risk in complex situations. Both are graphical representations showing all ways to attack or damage a system. Decision trees are event trees with decisions represented as possible events. Attack-preference models examine decisions from the viewpoint of the attacker rather than the defender. See http://csdl2.computer.org/persagen/DLAbsToc.jsp?resourcePath=/ dl/proceedings/&toc=comp/proceedings/itcc/2004/2108/01/2108toc.xml&DOI=10.1109/ITCC.2004.1286496. Accessed Nov. 1, 2006. â The DHS methodology, as reflected in software, actually does allow changes in assumptions; but this must be done through an analyst and would require a significant time delay and limit the range of alternatives that could be examined.
REPRINTED INTERIM REPORT 137 Methodological Improvements to the Department of Homeland Securityâs Biological Agent Risk Analysis BACKGROUND In recognition of potential bioterrorist threats, President George W. Bush issued Home- land Security Presidential Directive 10 (HSPD10), âBiodefense for the 21st Century,â on April 28, 2004. The directive requires assessments of the biological weapons threat to the nation: Another critical element of our biodefense policy is the development of periodic assessments of the evolving biological weapons threat. First, the United States requires a continuous, formal process for conducting routine capabilities assessments to guide prioritization of our on-going investments in biodefense-related research, development, planning, and preparedness. These assessments will be tailored to meet the requirements in each of these areas. Second, the United States requires a periodic senior-level policy net assessment that evaluates progress in implementing this policy, identifies continuing gaps or vulnerabilities in our biodefense posture, and makes recommendations for re-balancing and refining investments among the pillars of our overall biodefense policy. The Department of Homeland Security, in coordination with other appropriate Federal departments and agencies, will be responsible for conducting these assessments. The first Department of Homeland Security bioterrorism risk assessment was completed on January 31, 2006, and the report documenting the analysis was published on October 1, 2006. This assessment and report implemented the requirement of the National Strategy for Homeland Security, issued in July 2002 by the Office of Homeland Security, and of HSPD10 for DHS to assess the biological weapons threat in coordination with other appro- priate federal departments and agencies. At DHSâs request, the National Research Council (NRC) established the Committee on Methodological Improvements to the Department of Homeland Securityâs Biological Agent Risk Analysis to provide a review, via two reports (interim and final), of the methodology used in DHSâs report. The committeeâs first meeting was held at the National Academiesâ Keck Center in Washington, D.C., on August 28-29, 2006. The appendix contains the agenda for that meet- â Available at http://www.fas.org/irp/offdocs/nspd/hspd-10.html. Accessed Nov. 1, 2006. â Available at http://www.fas.org/irp/offdocs/nspd/hspd-10.html. Accessed Nov. 1, 2006. â Bioterrorism Risk Assessment. 2006. Biological Threat Characterization Center of the National Biodefense Analysis and Countermeasure Center. Washington, D.C. â See www.dhs.gov/xlibrary/assets/nat_strategy_hls.pdf. Accessed Nov. 1, 2006.
138 REPRINTED INTERIM REPORT ing. The committee heard and discussed presentations regarding risk analysis for biological pathogens by representatives of DHS, its National Biodefense Analysis and Countermea- sures Center (NBACC), Battelle Memorial Institute, the White House Homeland Security Council, and the Homeland Security Center for Risk and Economic Analysis of Terrorism Events (CREATE). The recommendations and discussion below are based solely on those briefings; DHSâs bioterrorism risk assessment was not made available to the committee in time for this interim report; however, the committee believes that these briefings included sufficient detail to adequately present the methodology used in the risk analysis. NBACC has contracted with Battelle to produce a computational engine that assesses the ânormalized riskâ of 28 pathogens as that risk relates to death, morbidity, and direct economic costs. In federal Fiscal Year 2007 (FY2007), DHS intends to improve and refine its probabilistic risk assessment (PRA). The committee has been asked to recommend pos- sible directions for improvement, as well as to comment on the technical aspects of DHSâs technique and the broader suitability of PRA. These comments are intended to provide guidance to DHS for its work during FY2007. Specifically, the committee has been given the following charge for this interim report: â¢ Assess the adequacy of the DHSâs current methodology as a foundation for the desired risk analysis capabilities; â¢ Identify any other risk analyses that rely on the major components of the existing methodology, probabilistic risk analysis and multi-attribute risk analysis, and which could guide DHSâs future developments; â¢ Assess the feasibility of incorporating models of second-order economic effects into the methodology during FY07; â¢ Identify better methods, if any, for handling the high degrees of uncertainty associated with the risk analyses of biological agents; â¢ Recommend near-term improvements to enhance the transparency of the method and its usefulness to decision makers; â¢ Discuss how the methodology could be extended to risks associated with classes of agents, including enhanced or engineered agents that have yet to be developed; and â¢ Discuss the feasibility of extending the methodology to also serve as a framework for risk analysis of chemical or radioactive threats. For this interim report, the committee was not able to address the last of these tasksâto examine risk analysis for chemical or radioactive threatsâbecause the breadth of this task exceeds the information that could be provided during briefings to the committee in one meeting. That task, however, will be addressed in the committeeâs final report. The committeeâs charge for its final report is as follows: â¢ Recommend how the methodology can incorporate changing probability distributions that reflect how various actors (e.g., terrorists, first responders, public health com- munity) adjust their choices over time or in different contexts; â¢ Recommend further improvements to the consequence analysis component of the methodology, including its models of economic effects; â¢ Identify any emerging methods for handling large degrees of uncertainty (e.g., fuzzy logic, possibility analysis) that merit consideration for future incorporation; â In general usage, the distinction between âdirectâ and âindirectâ costs is not precise. âDirectâ refers to costs such as those associated with closing a facility or controlling an epidemic. Other, or âindirect,â costs are those that result from these actions, such as lost business associated with the closing of a facility or reduced productiv- ity due to public health measures.
REPRINTED INTERIM REPORT 139 â¢ Recommend further improvements to the transparency and usability of the methodology; â¢ Discuss in more detail beyond the first report how the methodology could be extended to risks associated with classes of agents, including enhanced or engineered agents that have yet to be developed; and â¢ Discuss in more detail beyond the first report the feasibility of extending the methodol- ogy to also serve as a framework for risk analysis of chemical or radioactive threats. This charge will require study of the issues addressed here in greater depth and with a view toward the longer term. The committee is confident, however, that the recommenda- tions included in this interim report are appropriate and necessary in the near term. The committeeâs recommendations that follow address the general goal of improving method- ology. Each recommendation relates to multiple elements of the charge, as noted in the accompanying text. THE DHS BIOTERRORISM RISK ASSESSMENT This interim report frequently refers to âriskâ and activities surrounding its manipula- tion. For purposes of clarity, several definitions are given: â¢ Riskâthe potential for realization of unwanted, adverse consequences to human life, health, property, or the environment, computed as the product of the probability of an event and the consequence of that event. â¢ Risk analysisâthe overall process that involves risk assessment, risk perception, risk communication, and risk management. The hazards to be analyzed (e.g., physical, chemical, nuclear, radiological, and biological agents) may result from natural events (e.g., earthquakes and hurricanes), technological events (e.g., chemical accidents), and human activity (e.g., design and operation of engineered systems or attack by terrorists). â¢ Risk assessmentâthe scientific process of identifying hazards and quantifying their potential adverse consequences (magnitude, spatial scale, duration, and intensity) and associated probabilities including the uncertainties surrounding these estimates. Risk assessment may include a description of the cause-and-effect links among hazards and the nature of the interdependencies, vulnerabilities, and consequences. â¢ Risk perceptionâbeliefs held by individuals or organizations about the risks of a hazard. Risk perception is concerned with psychological and emotional factors, which have been shown to have an enormous impact on behavior. Risk perception can be influenced by personal knowledge, experience, and beliefs; it can be affected by changing perceptions of the threat, the vulnerabilities, and/or the consequences; it may be influenced by information about hazards, risk assessments, risk policies, and risk management decisions. â¢ Risk communicationâthe process used by risk analysts, decision makers, policy m Â akers, and intelligent adversaries to provide data, information, and knowledge to change the risk perceptions of individuals and organizations and enable them to as- sess the risk differently than they otherwise might. Risk communication needs must be considered when developing strategies for managing risk; thus any risk analysis methodology must take into account how affected individuals perceive and understand risk. â¢ Risk managementâthe process of constructing and evaluating strategies for reducing losses from future hazards and dealing with the recovery process should a disaster
140 REPRINTED INTERIM REPORT o Â ccur. Risk management strategies include a combination of options, such as pro- viding information (i.e., risk communication), economic incentives (e.g., subsidies, fines), insurance, compensation, regulations, and standards. These strategies enable individuals and private-sector or public-sector organizations to transfer, mitigate, or accept their perceived risks. Risk management strategies can be evaluated by under- taking cost-benefit analyses to determine the trade-off between the reduction of risk and the costs of undertaking such measures. In evaluating a risk management strat- egy, one needs to be concerned with the way resources are allocated (i.e., efficiency considerations) as well as with the impact of these measures on different stakeholders (i.e., distribution or equity considerations). The model used for the DHS bioterrorism risk assessment is a computer-based tool used for assessing the relative risk of terrorist use of each of 28 specific pathogens, identified in other sources. The methodology described below is an instance of probabilistic risk as- sessment, which is particularly well adapted for low-frequency, high-potential-consequence events for which there is no database sufficient to assess risk using statistical analysis of historical data. The PRA used by DHS divides the spectrum of possible attacks into a discrete set of scenarios, or sequences of events, and for each scenario it provides an estimate of the scenarioâs probability of occurrence, consequences, and risk. Owing to the extremely large size of the sample space, Battelle sampled the events in the scenarios involving a particular pathogen, estimated the risk associated with that pathogen, and compared it with the risk of other pathogens in order to obtain risk relative to that of other pathogens. Each scenario involves a chain of as many as 17 events, which can be partitioned into those characterizing the terrorist groupâs motivations and goals; those involving its methods and ability to acquire, produce, and transport the given bioagent; and those surrounding the attack and response to it. Each event is further given discrete characteristics. For in- stance, the event of target selection can be further decomposed into the selection of a large, open building; a small enclosure; a large, divided building; a large outdoor space; a water pathway; a food pathway; or a contact target such as a letter. The event tree generated thus has millions of scenarios, or paths through the tree, for which the probabilities and consequences must be explicitly or implicitly calculated. For each scenario, a range of consequencesâmeasured in terms of illnesses, fatalities, and economic lossesâmust be computed, with a probability distribution over the range. The âconsequence engineâ used for these computations consists of a series of equations whose variables are derived from the properties of the pathogen, the details of the scenario, and the hypothesized U.S. response to the terrorist event. DHS is developing improved means to estimate the first- and second-order economic effects (as discussed later in this report). In addition, it is developing systems dynamics models of the ways in which the scenarios might unfold. The committee will review this systems dynamics approach in its final report. Even from this brief description, it can be seen that the DHS model requires a large amount of information, much of which is uncertain. This information includes the known properties of the pathogens, estimates of the propensities of terrorists to take different ac- tions, and estimates of the reactions of the affected population and of the timeliness and effectiveness of the government response. With the exception of known scientific informa- tion, the parameters are either estimated from historical experience or elicited from experts, often in the form of probability distributions. â An âevent treeâ is a visual representation of all events that can occur in a system. As the number of events increases, the picture fans out like the branches of a tree.
REPRINTED INTERIM REPORT 141 RECOMMENDATIONS For the most part, the analysis described in the previous section follows approaches considered technically sound and useful in other areas of risk analysis such as nuclear reactor safety and chemical safety. In validation of risk, PRA avoids many of the practical problems and difficulties that arise from other alternative methods such as fuzzy logic, the analytic hierarchy process, or worst-case analysis (Banks and Anderson, 2006; Laviolette et al., 1995). Event-tree analysis, which is the basis of PRA, is a well-developed risk tool in nuclear reactor safety and many other, usually engineering, contexts (Lindley and Singpurwalla, 1986). The main concern of the committee is that the current PRA event-tree paradigm does not fully support any of the components of risk analysis. It does not include consideration of the actions of an intelligent and reactive adversary, which is required for a complete risk analysis. It makes no provision for risk perception. It does not allow the exploration by decision makers of âwhat-ifâ questions, which is needed for risk management. DHS needs to provide analyses for a variety of purposes to a variety of customers, and all within the context of competing security demands in the short run, while taking into account the longer-run concerns that may change over time. Therefore, a necessary first step is to clarify the longer-term goals and objectives of bioterrorism risk analysis. Recommendation 1: DHS should establish a clear statement of the long-term purposes of its bioterrorism risk analysis. In order to justify the current methodology as a foundation for future analyses, a clear statement of the long-term purposes of the bioterrorism risk analysis is needed to enunci- ate how it will support risk assessment, risk perception, and especially risk management decision making. Criteria and measures should be specified for measuring how well these purposes are achieved. Key issues to be addressed by such a statement should include the following: who the key stakeholders are; what their short- and long-term values, goals, and objectives are; how these values, goals, and objectives change over time; how the stakeholders perceive the risks; how they can communicate these risks more effectively; what they need from the risk assessment in order to make better (more effective, confident, rational, and defensible) resource-allocation decisions; and who should perform the analy- ses (contractors, government, both). Another important operational consideration is the determination of how DHS should incorporate new information in its analyses. The pace of change in biotechnology will require frequent and systematic updates of information used by the model. DHS issues âtailored assessmentsâ to respond to unscheduled require- ments, in addition to its biennial report, and it must be able to incorporate new intelligence information or technological change, for instance, in these analyses. DHSâs purposes for its bioterrorism risk assessment must be supported by its customers, by the U.S. Congress, and by the scientific community, among others; thus, DHS should actively solicit the opinions of its stakeholders to ensure that communication on issues of risk analysis is two-way. To that end, the language and analyses used must be precise. The technical presentations given to the committee suggest that the model documentation does not always use standard and consistent terminology. For example, several speakers at the committeeâs first meeting used the term ârelative riskâ to refer to what should be called ânormalized risk,â and âlikelihoodâ was sometimes used as a synonym for âprobability.â â The DHS methodology, as reflected in software, actually does allow changes in assumptions; but this must be done through an analyst and would require a significant time delay and limit the range of alternatives that could be examined.
142 REPRINTED INTERIM REPORT The terms ârisk,â âexpected risk,â and âexpected consequencesâ were often casually inter- changed, and the computation of ânormalized riskâ was flawed. The terms âillnessâ and âmorbidityâ should be clarified and defined more precisely (i.e., illness would need to be defined as either âinfectedâ or âsymptomaticâ). Other terms used in the presentations to the committee were not precisely defined, and functional notation was confusing. DHS should define and use a standard lexicon, clarify concepts, and align with contemporary literature in order to improve the transparency of its models and results. DHSâs operational definition of âriskâ should be refined to include time explicitlyâfor example, by indicating how many events with various degrees of severity of adverse consequences can be expected over what time intervals if different risk manage- ment interventions are implemented. Attention also needs to be given to the uncertainty and ambiguity associated with these risks. Use of outside peer reviews may help in this regard. The issues raised here are not minor concerns; this lack of precision can lead to internal inconsistencies in the model and to communication problems at all levels. DHSâs risk assessment currently encompasses what are mainly traditional bioagents. However, it seems logical that the DHS vision for risk analysis should be broad enough to include risks posed by other significant future biological threats. Traditional bioagents are ânaturally occurring microorganisms or toxin products with the potential to be weaponized and disseminated to cause mass casualties.â Testing the methodology by using existing biological agent threat lists, as has been done to date, is a prudent and logical way to start, given the very large number of pathogens that could possibly be used as weapons. Existing threat lists (e.g., from the Centers for Disease Control and Prevention10) reflect extensive experience and the judgment of the intelligence and scientific communities. However, many bioterrorism experts would agree that the âlogic behind biowarfare programs of the past will not necessarily guide the life sciences as new technology rapidly emerges; bio- warfare programs of the past predated current knowledge of molecular biologyâ (Relman, 2006, pp. 113-115). Therefore, future iterations of the methodology should also consider enhanced, emerging, and advanced agents in addition to traditional bioagents: â¢ Enhanced agents are those that are modified to circumvent current countermea- suresâfor example, microorganisms that are purposefully manipulated to be resistant to multiple antibiotics, thus complicating a public health response in the aftermath of an attack. â¢ Emerging agents are those that occur naturally but are newly recognized or anticipated to pose a public health threatâfor example, a highly lethal and readily transmissible influenza strain that may cause a pandemic. â¢ Advanced agents are novel microorganisms that may be created by employing labora- tory methods. The results of such an extended risk assessment would be useful in determining the appropriate allocation of resources to develop flexible defensesâthose that may be use- ful against a wide range of microorganisms that may share common processes in causing â After normalization (division by the average risk over all agents), information about the actual magnitude of the risk is lost, affecting risk assessment and making the analysis of most resource-allocation decisions difficult. Moreover, distributions of risk, as normalized in this way, cannot be created by simply normalizing the scale of the non-normalized risk. â Federal Register, Vol. 71, No. 174, 2006, available at http:/www.hhs.gov/ophep/ophemc/bioshield/ PHEMCESStrategyFRNotice090806.pdf. Accessed Nov. 1, 2006. 10âFederal Register, Vol. 71, No. 174, 2006, available at http://www.hhs.gov/ophep/ophemc/bioshield/ PHEMCEStrategyFRNotice090806.pdf. Accessed Nov. 1, 2006.
REPRINTED INTERIM REPORT 143 disease. Such an assessment would require information that is not currently availableâes- timates of likely developments in biotechnology that would enable new capabilities that could be used by terrorists. The committee believes that, for the near term, the elicitation of expert opinion, similar to what was undertaken in DHSâs assessment of traditional bio- agents, would be a useful starting point. This could be the first step in establishing the risk imposed by agents not yet in the environment and in broadening the analysis to include classes of agents rather than individual agents. The committee will examine this difficult problem in more depth in its final report. Recommendation 2: DHS should improve its analysis of intelligent adversaries. Event trees were not originally developed to model intelligent adversaries who adapt their attacks in response to (or in anticipation of) their opponentsâ defensive actions and/or in response to their own initial successes or failures in plan execution. Alterna- tive risk analysis techniques, including attack-preference, decision-tree, attack-tree, or attack-graph models,11 can complement or replace probability elicitation. There have been recent advances in dealing with interdependent and coordinated adversary actions, called interdependent security (Heal and Kunreuther, 2005), which may improve the fidelity of DHS models. To use a PRA event-tree risk assessment in the analysis of intelligent adversaries, the tree must include all realistic threats that adversaries may pursue. The committee believes that the DHS PRA tree is reasonably complete, although DHS should examine this further in light of the expectation that adversaries will adapt to any defensive decisions made by the United States. A small number of well-chosen red teams (i.e., individuals including both technologists and those with experience in targeting and strategy, whose purpose is to simulate adversarial decision making) to provide input for âwhat-ifâ scenarios can help to confirm and expand the current state of understanding and model validation and can complement expert opinion. The probabilities in the event tree must be of sufficient quality to produce trustworthy results. Most of the event probabilities have been generated using expert opinion. DHS is keenly aware that this approach may be unreliable, and the committee is pleased that DHS intends to use CREATEâs expertise to improve elicitation of the views of subject-matter experts. But the reliability of these probability assessments will always be problematic, requiring careful attention to the elicitation methods as well as needing well-designed sensitivity analyses (Kahneman and Tversky, 2000; Meyer and Booker, 2001). Moreover, strictly probabilistic analysis should also be supplemented with other methods, such as attack-preference models and attack-tree models, in order to ascertain any severe contradic- tions in the resulting risk management (or mitigation) recommendations. The Mission Oriented Risk and Design Analysis (MORDA) model, used in several Department of Defense risk assessment studies, is an example of the use of subject-matter expert teams from various disciplines to collect data and incorporate expert knowledge about adversaries. The MORDA model uses this collected information in adversary models and attack-tree models (Buckshaw et al., 2005). In order to better understand the sources of uncertainty and to plan for their reduction, 11â Attack trees and attack graphs are modeling techniques for understanding risk in complex situations. Both are graphical representations showing all ways to attack or damage a system. Decision trees are event trees with decisions represented as possible events. Attack-preference models examine decisions from the viewpoint of the attacker rather than the defender. See http://csdl2.computer.org/persagen/DLAbsToc.jsp?resourcePath= /dl/proceedings/&toc=comp/proceedings/itcc/2004/2108/01/2108toc.xml&DOI=10.1109/ITCC.2004.1286496. Accessed Nov. 1, 2006.
144 REPRINTED INTERIM REPORT any analysis resulting from the PRA model should include a data-quality matrix with a qualitative assessment of the sources and quality of the data and perhaps quantitative in- dications of the confidence and precision associated with current estimates (e.g., plausible range of values for model inputs) for the 28 bioagents and the 17 steps in the event tree developed by Battelle. The committee believes that static probabilities, as they are currently used by DHS, are insufficient to model the behavior of intelligent adversaries. Static probabilities may be appropriate when dealing with nuclear reactors, but not for an intelligent adversary who adapts an attack on the basis of the actions of the defenders and on information that it ac- quires as planning and execution progress. Although classical game theory is a formal way to handle such situations, there is now a growing literature that may be more relevant for dealing with the adversarial nature of the bioterrorism problem (Bier et al., 2005; Enders and Sandler, 2006; Heal and Kunreuther, 2005). Studies have been conducted by the Navy Postgraduate School in which the defender computed a strategy that would minimize the maximum damage that could be caused by an attacker (terrorist) who was aware of that strategy. These âattacker-defenderâ studies, which have been undertaken in various contexts to determine how best to protect U.S. infrastructure, might serve to complement the static probability analyses currently used by DHS (Brown et al., in press). Any analysis of adversarial actions, as well as of mitigation strategies and responses, will require accurate estimates of the real damages that the United States would experi- ence. Currently, the PRA computes measures of mortality, morbidity, and direct economic costs. But indirect economic costs (e.g., of business interruption) must also be included to avoid underestimating true financial consequences. If these indirect costs are large, it may be necessary to evaluate their impact, taking into account risk aversion and/or loss aversion.12 Evaluation of these costs will require that DHS more carefully consider its consequence measures and modeling, which should be augmented to include indirect economic effects. DHS is planning to use input-output models and CREATE-developed general equilibrium models to improve its estimates of the direct economic consequences of terrorist events in its FY08 risk assessment. Both of these techniques can be used to estimate the indi- rect costs. The committee agrees that their use is appropriate for the next stage of model development. DHS is planning, however, to pursue consequence modeling that is of higher fidelity and resolution than that of the modeling being used now. Such a path is not clearly justified by either data availability or currently articulated decision needs. More fine-grained and detailed consequence models of targets should only be pursued if such granularity directly supports improved risk management decision making. The committee is concerned about the use of too fine a granularity in the simulation. It could result in false precision that might be mistaken for accuracy in a model that is, by necessity, not particularly well validated, affecting both risk assessment and risk management. In addition, too fine a granularity decreases the transparency of the model. The committee is concerned that merely increas- ing the number of parameters that need to be elicited may not increase the real or useful precision of the model. Individualsâ perceptions of risks can have a major influence on indirect economic con- sequences, resulting in a need to develop strategies to manage risk perception and to deal with these perceptions. DHS should consider decision-analytic methods for dealing with 12â Risk aversion is the reluctance of a person to accept a bargain with an uncertain payoff rather than another bargain with a more certain, but possibly lower, expected payoff. Loss aversion refers to the tendency for people to strongly prefer avoiding losses to acquiring gains.
REPRINTED INTERIM REPORT 145 issues such as attitudes toward probabilities and consequences (the components of risk), the role of affect and emotion, biases in judgment, and the types of rules used by individuals and groups in choosing between alternatives. Recommendation 3: DHS should increase its risk analysis methodologyâs emphasis on risk management. Risk managers should be able to explore the impact of different investment strategies on the effects they might have on the attacker. Typical trade-offs facing U.S. risk managers might involve allocating resources among human intelligence versus vaccine development or deployment of biohazard sensors. A given resource allocation may drive a correspond- ing set of decisions by potential terrorists, which in turn changes risks. The current DHS event-tree PRA is not adequate for such risk management purposes. This is so because the event-tree PRA cannot determine which portfolio of investments is most effective and how potential attackers are likely to respond, although it does provide value in giving a coarse look at relative risks. This inadequacy highlights the importance of improving the current risk analysis with red teaming, attack-preference models, attack-tree models, and perhaps, game-theoretic analyses or alternatives. All of these techniques will serve to mitigate the high degree of uncertainty associated with the risk analysis of biological agents. It is unclear to the committee how the current PRA approach supports DHSâs design and evaluation of alternative risk management strategies. The computational engine does not permit, let alone encourage, risk managers to explore scenarios of âif resource allocation, then probable consequence.â DHS needs to determine how alternative risk management strategies, involving specific resource investments in attack prevention, consequence miti- gation, or other forms of protection, translate to changes in the overall level of risk. An interface and visualization component is needed to display results and limitations of this very complex model and to improve transparency. In evaluating alternative risk management strategies, DHS should take into account all significant benefits that result from any strategy, beyond just those benefits that directly impact the risks of bioterrorism attacks. For instance, investment in intelligence might in- clude all homeland security risks, and the risk management trade-offs should be considered in that larger context. This last conclusion has ramifications for all of DHSâs risk analysis and directly addresses the committeeâs final charge. It will be more fully explored in this studyâs final report. DHS should develop a targeted research program to develop risk analysis methods that take into account the decision makerâs risk perception and risk management strategies. Such a program would include the following, for example: consideration of how constraints on resources available to the decision maker might affect terrorist decisions, and an under- standing of how attackers who encounter failures or setbacks in executing an initial plan will respondâincluding the realistic possibility that they will implement contingency plans or adaptively replan to achieve goals that still appear feasible and worthwhile. 13 Methods for modeling multiple coordinated attacks by teams of adversaries should also be considered.14 These changes should all be incorporated into the next generation of DHSâs bioterrorism risk assessment and management technologies. The committee believes that these extensions can be achieved by expanding the models rather than by increasing the fidelity of existing models. 13â See http://handle.dtic.mil/100.2/ADA009141. Accessed Nov. 1, 2006. 14â See http://www.rms.com/Publications?QuanTerRisk4Portfolios_Woo_Aon.pdf. Accessed Nov. 1, 2006.
146 REPRINTED INTERIM REPORT SUMMARY As previously noted, each of the committeeâs recommendations relates to multiple elements of its charge. Here, responses to each element of the charge, in order, are summarized. â¢ DHSâs current methodology is adequate but incomplete. A statement of purpose is needed, as well as methods to handle intelligent adversaries. Red teaming, attack- preference models, attack-tree models, and game-theoretic analyses should all be examined for the purpose of supplementing the existing methodology. â¢ The analyses cited, by Buckshaw et al. (2005) and by Brown et al. (in press), are examples of other types of risk analysis that would be appropriate for DHSâs future development. â¢ DHSâs current plans for the incorporation of second-order indirect economic effects into its methodology are appropriate, as long as the modelâs level of granularity is carefully considered. â¢ High degrees of uncertainty can be addressed by the incorporation of red teaming, attack-preference models, attack-tree models, and game-theoretic analyses. The incor- poration of data-quality matrices in DHSâs analyses will lead to a better understanding of the sources of uncertainty. â¢ In order to improve transparency, DHS should define and use a standard lexicon, clarify concepts, and align with the contemporary literature. â¢ In order to extend the methodology to risks associated with classes of agents, care- ful elicitation of expert opinion is the best starting point. This issue will be further examined in the committeeâs final report. â¢ No examination was made in this interim report of the feasibility of extending the meth- odology to serve as a framework for risk analysis of chemical or radioactive threats. REFERENCES Banks, D., and S. Anderson. 2006. âCombining Game Theory and Risk Analysis in Counterterrorism: A Smallpox Example.â Pp. 9-12 in A. Wilson, G. Wilson, and D. Olwell, eds., Statistical Methods in Counterterrorism. New York: Springer. Bier, Vicki, Santiago Oliveros, and Larry Samuelson. 2005. âChoosing What to Protect: Strategic Defense Al- location Against an Unknown Attacker.â University of Wisconsin Working Paper. Brown, G., W. Matthew Carlyle, Javier Salmeron, and Kevin Wood. In press. âDefending Critical Infrastructure.â Interfaces. Buckshaw, Donald L., Gregory S. Parnell, Willard L. Unkenhotz, Donald L. Parks, James M. Wallner, and O. Sami Saydjari. 2005. âMission Oriented Risk and Design Analysis of Critical Information Systems.â Military Operations Research 10(2): 19-38. Enders, Walter, and Todd Sandler. 2006. The Political Economy of Terrorism. Cambridge: Cambridge University Press. Heal, Geoffrey, and Howard Kunreuther. 2005. âYou Only Die Once: Interdependent Security in an Uncertain World.â Pp. 35-36 in H.W. Richardson, P. Gordon, and J.E. Moore II, eds., The Economic Impacts of Terrorist Attacks. Cheltenham, U.K.: Edward Elgar. Kahneman, Daniel, and Amos Tversky. 2000. Choices, Values and Frames. New York: Cambridge University Press. Laviolette, Michael, John W. Seamon, Jr., J. Douglas Barrett, and William H. Woodall. 1995. âA Probabilistic and Statistical View of Fuzzy Methods.â Technometrics 37: 249-261. Lindley, Dennis V., and Nozer D. Singpurwalla. 1986. âReliability and Fault Tree Analysis Using Expert Opin- ions.â Journal of the American Statistical Association 81: 87-90. Meyer, M.A., and J.M. Booker. 2001. Eliciting and Analyzing Expert Judgment: A Practical Guide. ASA-SIAM Series on Statistics and Applied Probability, Vol. 7. Philadelphia, Pa.: Society for Industrial and Applied Mathematics. Relman, D.A. 2006. âBioterrorismâPreparing to Fight the Next War.â New England Journal of Medicine 354: 113-115.
REPRINTED INTERIM REPORT 147 Appendix AGENDA FOR COMMITTEE MEETING, AUGUST 28-29, 2006 KECK CENTER OF THE NATIONAL ACADEMIES 500 Fifth Street, N.W. Washington, DC 20001 Monday, August 28, 2006 Closed Session (committee members and NRC staff only) 8:00 a.m. Data-Gathering Session Open to the Public 9:45 a.m. Introductory Remarks Department of Homeland Security Science and Technology Leadership 10:00 a.m. Biology Presentation Prof. Luciana Borio, University (background for non- of Pittsburgh, Center for Biosecurity biologists) 10:45 a.m. Break 11:00 a.m. DHS and National Dr. Steven Bennett, DHS/NBACC Biodefense Analysis and Dr. Bernard Courtney, DHS/NBACC Countermeasures Center (NBACC) Background and Risk Assessment Requirements
148 REPRINTED INTERIM REPORT 11:30 a.m. DHS 2006 Bioterrorism Dr. Richard Denning, Battelle Risk Assessment Memorial Institute Methodology 1:00 p.m. Lunch 1:45 p.m. Past Experiences and Prof. Detlof von Winterfeldt, Implications for Director, Center for Risk and Bioterrorism Economic Analysis of Terrorism Events (CREATE), University of Southern California 2:15 p.m. Assessing the Economic Prof. Adam Rose, Impacts of Terrorismâ Pennsylvania State University and Capturing Behavioral CREATE Linkages and Resilience 2:45 p.m. Break Data-Gathering Session Open to the Public: Scenario Analysis and Consequence Modeling 3:00 p.m. Branch Probabilities and Uncertainty Management Mr. Rob Carnell, Battelle Atmospheric (Outdoor) Ms. Mary Shell, Battelle Dispersion Modeling Indoor Aerosol Dispersion Dr. Brian Hawkins, Battelle Modeling Medical Mitigation and Ms. Traci Hale and Dr. Nancy Epidemiological Modeling McMillan, Battelle Food and Water Mr. Jon David Sears, Battelle Contamination Modeling Risk Calculation Engine Mr. Rob Carnell, Battelle 5:30 p.m. Reception Tuesday, August 29, 2006 Data-Gathering Session Open to the Public 9:30 a.m. Updates and Planned Changes DHS/NBACC, Battelle Staff for the 2008 Bioterrorism Risk Assessment 10:45 a.m Break Closed Session (committee members and NRC staff only) 4:00 p.m. Adjourn