CSEPP.ORG

Purpose

This Annex establishes responsibilities, policies and priorities for Recovery and Restoration operations that are essential to protect human health, the environment, private and public property, and the region's economy following a "Community Level" event at the Umatilla Chemical Depot.

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Scope

This Annex provides the plan for the Greater Umatilla Community's Recovery and Restoration operations. For the purposes of this Annex, Recovery and Restoration operations begin with the declaration of a Community Level Event. Initial Recovery and Restoration activities including planning, requesting resources, deploying assets, and staging them will occur during the initial response phase of operations. Recovery and Restoration activities will continue until the Greater Umatilla Community is restored to normal and made economically equivalent to pre-event conditions. The Recovery and Restoration process can last from weeks, to months, to years, depending on the severity of the event and agent involved. Primary responsibility for actual performance of Recovery and Restoration will reside with local and Tribal authorities with extensive support from state and federal agencies which have the expertise and resources to accomplish required tasks in accordance with local priorities established by the Multi Agency Coordinating (MAC) Group. The Oregon State Emergency coordination Center (ECC) will serve as the conduit for local requests for assistance and the coordinating agency for other state and federal government agencies supporting the Recovery and Restoration effort. Confederated Tribes of the Umatilla Indian Reservation (CTUIR) resource and support requests may be coordinated directly with the Federal Emergency Management Agency (FEMA). CTUIR officials may also coordinate with the other jurisdictions involved in the Recovery and Restoration process for resource requirements through the MAC Group, the Off Site Coordination Center (OCC), and the Oregon State ECC.

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Policies and Procedures

1. The Greater Umatilla Community will utilize the National Incident Management System (NIMS) and the Incident command System (ICS) during the Recovery and Restoration phase of a Chemical Stockpile Emergency Preparedness Program (CSEPP) Community Level Event.
2. It is the community's policy that a Community Level Event occurs if thechemical warfare agent (HD), at any concentration level, crosses the Umatilla Chemical Depot's (UMCD) boundaries.
3. Reentry operations are a subset of the larger Recovery and Restoration process.
4. Priorities for allocation of resources will be determined by the MAC Group employing the procedures in the MAG Group Handbook. (See Appendix 3 to this annex.)
5. An Off Site Coordination Center (OCC) will be established to coordinate activities and resource priorities between the Service Response Force and Off Post Incident Commander. This coordination will include: prioritizing and deconflicting resource requests, securing community support for SRF requirements (guides, access to private property, property ownership information, securing support facilities, etc.) and synchronization of use of sampling, laboratory and data analysis capabilities. The OCC will be for coordination purposes only and will not perform any command functions.
6. The Greater Umatilla Community priorities for Recovery and Restoration are listed at listed at Appendix 1 to this Annex.
7. The Oregon Public Health Department will give input to the MAC Group which will then be responsible for recommending when the affected jurisdictions' environment and infrastructures are safe for civilians to return to areas that have, or potentially have, been exposed to chemical warfare agent(s).
8. Reentry and Restoration decisions will be based on sound scientific data that includes the empirical data derived from environmental samples (soil, air, water and tissue), human and animal food samples, and human and animal blood samples analyzed by certified laboratories designated by the Oregon State Public Health Department (OSPHD) and Oregon Department of Environmental Quality (ODEQ). (See Appendix 7, OSPHD and ODEQ list of certified sampling agencies/firms and analytical laboratories.)
9. All samples collected off post including in areas of CTUIR tribal interest by the U. S. Army, its designated contracting firms, or CTUIR, will follow the sampling protocols established by the IC and may be independently verified by laboratories certified by the OSPHD and ODEQ based on the recommendation of the EPA.
10. For Re-entry, Recovery and Restoration purposes, the Acute Exposure Guideline Levels I (AEGL I) Risk Envelope shall be the standard descriptor for identifying impacted areas. This does not preclude the inclusion of additional areas other than those under the Risk Envelope when addressing regional economic and environmental restoration concerns. Samples will be taken in areas outside the AEGL I Risk Envelope for quality assurance and confirmation purposes.
11. The Oregon Department of Environmental Quality (ODEQ) shall be the principle advisory authority, with technical assistance from the Oregon Department of Fish and Wildlife (ODFW), to the effected local jurisdictions, less the ceded properties under the jurisdiction of the Confederated Tribes of the Umatilla Indian Reservation (CTUIR), on all matters relating to environmental restoration to include effected eco-systems and food chains.
12. The Confederated Tribes of the Umatilla Indian Reservation shall be the principle authority on ceded lands for all matters related to environmental restoration to include effected eco-systems and food chains. The EPA will be the principle advisory to CTUIR on all such matters.
13. The Oregon State Medical Examiner will advise the Incident Commander and MAC Group on the procedures for the on-scene investigation, recovery, and decontamination of human remains.
14. The ODEQ, OSDPH, ODFW, and Oregon Department of Agriculture (ODA) shall jointly advise the MAC Group on all issues including determination of standards for decontamination of public and private property and proper disposal of contaminated items, and disposition of domestic and wildlife animal carcasses.
15. All owners of public and private property within the AEGL I Risk Envelope may request that their property be decontaminated to the standard established by OSDPH/EPA. All requests will be honored based on a priority list established by the effected local jurisdictions. All schools and health care facilities within the AEGL I Risk Envelope will have a mandatory decontamination.
16. All public and private property within the AEGL II Risk Envelope shall be decontaminated prior to its reoccupation for use. Compensation for all damages shall be the responsibility of the Federal Government.
17. Public and private structures under an AEGL III Risk Envelope may be razed with all debris taken to an ODEQ/EPA certified disposal facility. Real property (cars, trucks, trailers, farm equipment, etc.) in the AEGL III Risk Envelope may be impounded and properly disposed of at an ODEQ/EPA approved disposal facility unless the owner specifically requests the item be decontaminated to ODEQ/EPA approved standards. All impacted property owners will be compensated by the Federal Government.
18. Local jurisdiction public health agencies, with the assistance of OSDPH, will establish and maintain a long term health monitoring program for all citizens within the AEGL I Risk Envelope to track any long term health consequences from low level exposure to chemical warfare agents (i.e., Gulf War Syndrome) and their related "daughter" breakdown by products.
19. The Oregon Department of Agriculture (ODA), with the assistance of local authorities, will establish a Food/Crop Embargo Area for all food and agricultural products within the AEGL I Risk Envelope. No food products will be allowed to enter or leave the restricted area. To better describe and enforce the embargo area, clearly definable features such as roads, rivers, rail lines and topographic features will be used to establish the zone's boundaries. This boundary may well encompass more terrain than the AEGL I Risk Envelope.
20. The Oregon Department of Agriculture (ODA), with input from local authorities, will advise the IC on a policy for distressed pets, companion animals, and livestock in distress.
21. The Oregon Department of Agriculture (ODA), with input from local authorities, will establish and enforce a policy for the reintroduction of beef and dairy cattle, sheep, swine, goats, buffalo, lamas, pond raised fish, and poultry regarding introduction of meat, dairy, and egg products into the human food chain.
22. Local authorities will request that the Regional Maritime Security Coalition establish a Cargo Information Action Center (CIAC) to help local decision makers and state and federal agencies restore transportation, energy, and commerce systems. The RMSC will, as required, provide a representative to support the Governorís Recovery Cabinet and the Oregon Emergency Coordination Center and Joint Field Office collocated in Salem, Oregon.
23. Local jurisdictions will pursue options to insure that area citizens, businesses, and governmental agencies are made whole by the Federal Government to include: reimbursement for lost or reduced property values, lost or reduced tax revenues, lost or reduced markets, and lost or reduced business opportunities, and lost or reduced income.
24. The federal government will be responsible for all off post actions and costs associated with restoration and recovery of federal property within the impacted event footprint. The federal government will not allow their properties to become a threat to surrounding properties and work expeditiously to ensure restoration and recovery are completed in coordination with local activities.
25. The treaty rights of the Confederated Tribes of the Umatilla Indian Reservation and the provisions of the Native American Graves Protection and Repatriation Act and the Archaeological Protect Act will be observed as they apply Recovery and Restoration activities.

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Situation

This Annex will be activated by the Incident Commander for planning and resource requests at the declaration of a Community Level Event. Actual Recovery and Restoration operations will begin once all people have been removed from the 'At Risk' area, the threat has been contained, and there is no danger of further release, and the Risk Envelope has been isolated with security in place to prevent unauthorized reentry.

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Organization

The Recovery and Restoration phase of operations will be conducted utilizing NIMS and ICS organizational models. In addition to first response agencies, many local, tribal, state, federal, non-governmental, and private sector agencies not associated with initial emergency response operations will be incorporated into the ICS structure during this phase of operations.

A Multi-Agency Coordination Group (MAC Group) comprised of local, state, and tribal elected officials, or their designated representatives with delegated authority to speak for the elected official, will be created to provide input to the Incident Commander regarding community priorities. The MAC Group staff positions will be filled by county, state, and tribal personnel.

A Joint Field Office (JFO), and its precursor, will be established, probably collocated with the state Emergency Coordination Center (ECC) in Salem, Oregon. These nodes will provide support to the Incident Commander by coordinating and facilitating the provision of state and federal assets to support the Incident Commander. (See Appendix 5, Recovery and Restoration Organization).

To facilitate more effective coordination between the Service Response Force (SRF) Commander and The Incident Commander, an Off Site Coordination Center (OCC) will be establish. The OCC will not exercise any control authority and will be utilized exclusively for coordination and synchronization of SRF resources and activities in support of Off Post Recovery and Restoration operations.

A Multi-Agency Exposure Assessment Center (MAEAC ) may be created in the OCC to support Incident Commander's Planning Section to provide consolidated interpretation and analysis of the data developed through the sampling and laboratory analysis program.

The Oregon Governor may activate the Governor's Recovery Cabinet to coordinate the activities of state agencies and the private sector. If a Federal On Scene Coordinator is appointed, they will maintain a presence in the Umatilla County Emergency Operations Center (EOC).

The following local and tribal organizations may have responsibilities in Recovery and Restoration Operations:

 

The following state organizations may provide support services to the Incident Commander and local authorities:

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Planning Assumptions

1. The Governor has declared a State "State of Emergency" and all assets requested by local authorities are being deployed.
2. The Governor has requested and received a Presidential Disaster Declaration allowing the deployment of federal assets.
3. The Federal government will be responsible for all costs incurred by local governments, businesses, and others if the chemical event is a direct result of the release of chemical agent resulting in a Community Level Event.
4. The US Army will deploy a Service Response Force to assist with Umatilla Chemical Depot on post recovery and restoration actions and to support off post requirements defined by the Incident Commander with input from the MAC Group.
5. The State of Oregon will stand up its Emergency Coordination Center (ECC) to support requests from the on-scene Incident Commander. State agency operations centers will also be activated as appropriate.
6. State agencies will be able to provide the support services requested by local authorities through the ICS.
7. A Multi-Agency Coordinating Group (MAC Group) comprised of designated County Commissioners from Umatilla, Morrow, and Benton (WA) Counties, representatives of the Governors of Oregon and Washington with a signed Delegation of Authority, and a member of the Confederated Tribes of the Umatilla Indian Reservation (CTUIR) Board of Trustees will establish priorities for the Incident Commander. The MAC Group will be chaired by an Oregon county commissioner.
8. The at risk population the sheltered-in-place will be removed from the hazard area and directed to mass care shelter facilities operated by the American Red Cross. Persons who evacuated and stranded persons will be directed to the shelter facilities as well. All displaced persons will remain in shelter or other housing until the Incident Commander has been advised by the OSPHD that it is safe for their return.
9. The Oregon Army National Guard and Oregon State Police will assist local authorities with the enforcement of an exclusion zone to prevent unauthorized personnel from entering the hazard area.
10. Federal and state government agencies will provide adequate interim housing for all displaced residents until they can be returned to their place of residence.
11. If required, state and federal agencies will assist local authorities with mortuary services.
12. State and federal agencies will assist local authorities by collecting and analyzing air, water, soil and tissue samples.
13. An escorted reentry program will be established by the Incident Commander to allow persons with a legitimate reason to enter the hazard area to perform essential tasks.
14. The Regional Maritime Security Coalition (RMSC) will establish a Cargo Action Information Center (CIAC) to assist local authorities with rerouting and reconstituting intermodal transportation systems and restoring regional commerce.

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Concept of Operations

Planning and resource requests for Recovery and Restoration operations will begin at the declaration of a Community Level Event. Field Recovery and Reentry Operations will begin as soon as the at risk population has been extracted from the hazard area and there is 100% assurance that the incident is contained and there is no risk of further release of chemical warfare agent.

The Incident Commander, with the advice of local authorities and MAC Group, will determine an Exclusion Area which encompasses the AEGL I Risk Envelope. The area may be larger than the Risk Envelope to facilitate ease of enforcement and to better communicate the area to the public. The perimeter of this Exclusion Zone will be patrolled to insure enforcement. All law enforcement and National Guard forces enforcing the Exclusion Zone will be authorized to arrest and detain anyone attempting to enter the restricted area.

If required, the Incident Commander will direct the Operations Section to plan retrieval of human casualties of the event. The deceased will be humanely placed in a certified 'body bag' to prevent cross contamination from the remains. If required, an on scene investigation of the death site will be conducted by appropriate law enforcement and coroner officials. The remains will be taken to a designated mortuary facility for decontamination and autopsy prior to turning the body over to the family for funeral services. All personnel handling any actual or suspected chemical warfare agent fatalities will wear appropriate PPE as determined by the Incident Commander's Safety Officer.

With the assistance of local and state authorities, the Incident Commander will direct the Operations Section to develop a Monitoring and Sampling plan. The plan will be consistent with the priorities established at POLICIES AND PROCEDURES (5.) at page one of this Annex. The Logistics Section will activate any pre-existing contracts with commercial firms authorized by appropriate state agencies to perform monitoring, sampling, and analysis of chemical warfare agents. Additionally, the Incident Commander will direct the Logistics Section to request any state assets (OSDPH, ODEQ and Oregon National Guard) that are equipped and trained to conduct monitoring and sampling operations. The Safety Officer will insure that proper protective equipment is worn by all sampling team members and that communications support is available to all teams. The Operations Section will continuously monitor the status and location of all sampling teams. Additionally, the Logistics Section will request state assistance in identifying any state laboratory facilities or additional federal or commercial laboratories capable of providing analysis support. The Operations Section will develop a transportation plan to deliver samples to the designated laboratories consistent with state and federal rules and regulations governing the transportation of hazardous materials and chemical warfare agent samples. The Operations Section will request the assistance of the Oregon State Police and Oregon National Guard aviation assets to transport samples to the designated laboratories. The MAC Group will meet daily to review monitoring and sampling plans and provide input to the Incident Commander. The monitoring and sampling plan will be coordinated with the Army on scene commander to maximize use of resources and to insure that Army collected off post samples are also provided to independent laboratories for verification testing.

The Incident Commander will institute an escorted re-entry program for persons with a legitimate reason to perform essential tasks within the at risk area. All re-entry missions will be planned by the Operations Section. If the mission is within the AEGL I Risk Envelope, the mission will require an escort with radio communications to the Incident Command Post. If the mission is within the AEGL I footprint, the mission will require that respiratory protection (An escape respirator will be sufficient for this purpose), agent monitoring support, blister agent antidote kits (if appropriate), and radio communications are available. If the mission is within the AEGL II Risk Envelope, respiratory protection, appropriate equipment, antidote kit, monitoring and communications support will be required. If the mission is in the AEGL II footprint, full Level A personal protective equipment (PPE), monitoring and communications support must be available. If the mission is in the AEGL III Risk Envelope or foot print, Level A PPE must be worn, 2 antidote kits/one person carried, monitoring support and communications will be required. If communications are lost, the mission will be aborted. The Public Information Officer will communicate a number for the public to call to request temporary re-entry. An Operations Section member will staff the number and determine if the request has merit. Examples of things that merit requests to re-enter include care of livestock, maintenance and repair of critical infrastructure (energy facilities, irrigation systems, municipal water and sewer systems, etc.) and protection of property. If the request is granted, the requestor will be directed to report to a staging area at a designated time. At the staging area, the requestor will be oriented on safety procedures and the proper wearing of PPE, if required. The appropriate pass or identification that permits a person to enter will be in the form of an authorizing letter, special picture identification, or other acceptable form that identifies the person. The person seeking re-entry will have their name placed on an official list maintained at the Incident Command Post.

The Incident Commander will direct the Operations Section to activate a joint public - private Cargo Information Action Center (CIAC) to assist with the rerouting, prioritization and restoration of commercial traffic (road, rail and river), restoration of energy generation transmission systems (ethanol, bio-diesel and fuel blending plants; cogeneration electrical plants, hydroelectric plants, transformer yards, and transmission lines; and natural gas transmission lines, pump stations, and storage tanks), and related ports, locks, bridges, and warehouse facilities. The CIAC will provide private sector expertise in these areas and communicate plans and procedures affecting these sectors from the Incident Commander to the private sector.

The Incident Commander will direct the Operations Section to establish a behavioral health and critical incident stress debriefing program. Local behavioral health professionals will advise the Operations Section on requirements and facility needs. Once facility locations and hours for the public have been establish, the Public Information Officer will communicate this information to the general public. In parallel, a critical stress debriefing program will be established for first responders. The Operations Section will arrange for the delivery of these services on an as required basis with the head of each responding local agency. The Logistics Section will request additional behavioral health from state agencies and approved civilian agencies as required.

A Decontamination Plan will be developed by The Incident Commander utilizing the priorities at POLICIES AND PROCEEDURES (5.) at page one. To the maximum extent possible, commercial firms will be utilized to conduct decontamination operations. To assist with decontamination activities, available resources may be requested from the state. Additionally, state agencies may be requested to provide technical expertise and quality control for decontamination operations. The ODEQ will be requested to provide guidance for establish guidelines and standards to protect the environment during decontamination operations. The Planning Section will plan all decontamination operations for scheduling and execution by the Operations Section. The Safety Officer will review all work plans to establish personnel protection requirements. All decontamination teams will establish and maintain communications with the Incident Command Center while within the hazard area.

The Incident Commander will direct local health officials to establish a Health Surveillance Program for all residents in the hazard area. Additionally, all efforts will be made to identify any transient motorists and visitors in the area at the time of the event. A separate registry will be established for emergency responders who participated in the event. The Logistics Section will request assistance from the OSDPH to establish criteria and protocols for the long term health surveillance program. Once the plan is developed, the Public Information Officer will communicate the essential elements of the plan to the public and the procedures and locations where to register for the health monitoring program.

The Incident Commander will coordinate with Federal authorities regarding the creation of claims and assistance centers to aid area residents affected by the event. The Incident Commander will assist with the identification of appropriate facilities to house Claims and Assistance Centers, provision of equipment and supplies for these centers, access to local data bases to help identify local residents, property ownership and value information, employment data, and security and crowd control assistance. The Incident Commander will direct the PIO to assist in the development of a public information campaign to support the Claims and Assistance process.