Program Manual Radiological Emergency Preparedness FEMA P-1028 / December 2019 THD Director’s Foreword The Technological Hazards Division (THD) Federal Emergency Management Agency (FEMA) Radiological Emergency Preparedness (REP) Program is moving into its fifth decade of providing radiological preparedness support and oversight for state, local, and tribal governments surrounding nuclear power plants (NPPs). Regardless of how our mission and structure have changed over the years, the fundamental character, inspiration, and motivation of the REP Program remains the same: serve our Nation by assisting our communities and first responders, especially when they are most in need, before, during, and after disasters. As we continue to enhance FEMA’s REP Program, we must view all the work FEMA does in concert with the emergency management community as part of a broad plan for addressing the demands and challenges of catastrophic disasters. FEMA THD drives FEMA initiatives through the REP Program’s interactions with the state, local, and tribal governments as well as the Federal interagency: Whole Community. To ensure our efforts become part of an interconnected plan of action, we continue to focus on our “Whole Community” initiative. “Whole Community” uses planning assumptions for catastrophic disasters based on the worst-case scenarios. These scenarios challenge preparedness at all levels of government and force innovative, non-traditional solutions as part of the response and recovery strategy to such events. National Preparedness System (NPS). In addition, this updated version of the REP Program Manual (RPM) continues THD’s evolution of adopting and aligning REP policy and doctrine with the NPS. Part III of this guidance document adapts core capabilities from the National Preparedness Goal into the REP assessment strategies. Community Lifelines. THD advances FEMA’s Community Lifelines concept through our Strategic Plan. Our Strategic Plan outlines three goals for the emergency management community: (I) Build a Culture of Preparedness, (II) Ready the Nation for Catastrophic Disasters, and (III) Reduce the Complexity of FEMA. The goals and objectives outlined in the Strategic Plan will reduce risk to Community Lifelines before a disaster and support rapid stabilization and restoration during and after a disaster. A lifeline enables the continuous operation of government functions and critical business and is essential to human health, safety, or economic security. Our experiences over the years have helped us realize and appreciate the important role that state, local, and tribal governments play in disaster preparedness, response, and recovery. FEMA’s success with the REP Program is heavily dependent upon our ability to communicate, coordinate, and work closely together, building on the strengths of state, local, and tribal communities and integrating the public as a critical resource. Each emergency preparedness plan addresses the “unique” considerations that exist in the event of a catastrophic accident or incident at a commercial NPP. We believe that the communities’ radiological emergency response plans are a key part of a community’s comprehensive emergency management program. This important planning concept has served REP communities well over the years, and will continue to serve REP communities in the future as the threat dynamic changes and NPPs enter into decommissioning and the next generation of small modular reactors arrive on scene. Most importantly, we know of the great capacity of individuals to care for their families, friends, neighbors, and fellow community members, making our citizens “force multipliers” rather than liabilities. Together, as the “whole community,” we need to continue forward as the great team we have become since the accident at Three Mile Island (TMI) started us on the path of focused offsite radiological planning and preparedness. I look forward to cultivating our partnerships as we continue to enhance and refine the REP Program. Michael Casey, PhD Director, FEMA THD Radiological Emergency Preparedness Program Manual i This page intentionally left blank. ii Radiological Emergency Preparedness Program Manual Contents Introduction to the FEMA REP Program Manual . 1 A. Alignment with Modern Emergency Management Doctrine ..................................1 B. Use of This Document ............................................................2 1. Use by OROs ................................................................2 2. Use by FEMA Headquarters and Regional Staff Working in the REP Program ..................2 3. Use by Federal Government Agencies Supporting the Review and Approval of State, Local, and Tribal Government Planning and Preparedness ..................3 4. Use by Licensee OROs .........................................................3 PART I: The REP Program . 5 A. Mission Statement. 5 B. Purpose ......................................................................5 C. Scope. .7 D. Basis of the REP Program ..........................................................8 1. Establishment of the REP Program ................................................8 2. REP Program Initiatives .........................................................9 E. Evaluation of Radiological Emergency Preparedness ......................................11 1. FEMA-NRC Memorandum of Understanding .........................................11 2. Specific FEMA Review and Approval Procedures ......................................11 3. Federal Delegation of Tasks ....................................................12 4. Planning and Preparedness Assessment Strategy. 13 F. Technical Basis for the REP Program .................................................14 1. Nature of the Hazard .........................................................14 2. Protective Actions to Reduce Exposure to Radiation ...................................15 3. Protective Action Guides .......................................................16 4. Emergency Planning Zones .....................................................18 5. Radiological Incident Phases ....................................................19 PART II: REP Program Planning Guidance . 21 A. Introduction ...................................................................21 1. Purpose and Scope ..........................................................21 2. Contents and Organization .....................................................21 Radiological Emergency Preparedness Program Manual iii B. Planning Standards .............................................................22 C. Planning Guidance .............................................................23 Planning Standard A – Assignment of Responsibility ......................................23 Planning Standard B – Onsite Emergency Organization ....................................32 Planning Standard C – Emergency Response Support and Resources .........................34 Planning Standard D – Emergency Classification System ...................................39 Planning Standard E – Notification Methods and Procedures ................................42 Planning Standard F – Emergency Communications ......................................50 Planning Standard G – Public Education and Information. 54 Planning Standard H – Emergency Facilities and Equipment. 66 Planning Standard I – Accident Assessment ............................................74 Planning Standard J – Protective Response ............................................84 Planning Standard K – Radiological Exposure Control ....................................113 Planning Standard L – Medical and Public Health Support .................................125 Planning Standard M – Recovery, Reentry, and Post-Accident Operations ......................131 Planning Standard N – Exercises and Drills ...........................................138 Planning Standard O – Radiological Emergency Response Training. 154 Planning Standard P – Responsibility for the Planning Effort: Development, Periodic Review, and Distribution of Emergency Plans ....................................157 PART III: REP Program Assessment Policies and Guidance . 163 A. Introduction ..................................................................163 1. Contents and Organization ....................................................163 2. Background ...............................................................163 B. REP ASSESSMENT POLICIES AND PROCESS ..........................................164 1. Biennial Assessment ........................................................164 2. Scheduling REP Program Assessment Activities .....................................165 3. Developing REP Exercise Documents .............................................171 4. Conducting REP Assessment Activities ...........................................174 5. Documenting REP Program Assessment Activities ...................................175 6. REP Program Assessment Activity Credit ..........................................181 C. REP OBJECTIVES/CAPABILITY TARGETS ..............................................183 1. Overview of REP Evaluation Methodology ..........................................183 2. Planning Assessment Considerations ............................................184 3. Capability Target Components. .184 Objective 1: Emergency Operations Management .......................................185 iv Radiological Emergency Preparedness Program Manual Objective 2: Exposure Control .....................................................196