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CSEPP STRATEGIC PLAN i

Federal Emergency Management Agency Department of the Army

Chemical Stockpile Emergency Preparedness Program

This strategic plan reflects a coordinated, joint effort between the Department of the Army and

the Department of Homeland Security (DHS), Federal Emergency Management Agency

(FEMA) to develop and manage a Chemical Stockpile Emergency Preparedness Program

(CSEPP). In 1985, Congress directed the Department of Defense (DOD) to dispose of its lethal

unitary (pre-mixed) chemical agents and munitions while providing “maximum protection for

the environment, the general public and the personnel involved” (Public Law 99-145, Title 14,

Part B, Section 1412.) Acting upon Congress’ direction, the Army and FEMA signed a

memorandum of understanding (MOU) in 1988 that has facilitated CSEPP’s development of

emergency response capabilities for the eight chemical stockpile sites within the continental

United States and the adjacent civilian communities. This MOU was reaffirmed in 1993, revised

in 1997, and updated in 2004, continuing a close integration of on-post and off-post response

capabilities.

This plan supports and is aligned with the DHS and DOD strategic plans developed in

accordance with the Government Performance and Results Act (GPRA), as amended. It provides

a mission statement for the program and a description of program goals, how those goals

(including the CSEPP National Benchmarks) are to be achieved, and how achievement of the

goals is measured. It also addresses internal and external challenges that may make achievement

of program goals more difficult.

The ultimate objective is to ensure that chemical storage installations and off-post communities

fully meet the capabilities identified in the 12 National Benchmarks and sustain this capability

until the chemical agent stockpile has been eliminated. As the chemical stockpile diminishes,

reducing the risk to the general public, workers, and environment, we will continuously evaluate

CSEPP capabilities to ensure that this program is efficiently and effectively executed. As the

program comes to a conclusion, we will ensure that the capabilities developed and lessons

learned are preserved or transferred to the extent possible for the benefit of the wider emergency

management and homeland security community.

Richard W. Brletich Terry Hobbs Chief, Chemical Stockpile Chief

Emergency Preparedness Program Chemical Stockpile Emergency

US Army Preparedness Branch

Chemical Materials Activity Technological Hazards Division

Federal Emergency Management Agency

Department of Homeland Security

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CSEPP STRATEGIC PLAN iii

Table of Contents Purpose of This Document ............................................................................................................................ 1

CSEPP History and Overview ...................................................................................................................... 1

Program Origin ......................................................................................................................................... 1

Army and FEMA Organizational Roles.................................................................................................... 1

Demilitarization Status .............................................................................................................................. 2

Budgetary Process ..................................................................................................................................... 2

Regulatory and Guidance Context ............................................................................................................ 2

Use of Integrated Process Teams .............................................................................................................. 3

Participating Organizations ....................................................................................................................... 3

Program Closeout and Legacy .................................................................................................................. 4

Mission and Vision ....................................................................................................................................... 5

Mission ...................................................................................................................................................... 5

Vision ........................................................................................................................................................ 5

Performance Goals and Management ........................................................................................................... 5

Benchmarks............................................................................................................................................... 5

Program Budgeting and Controls .............................................................................................................. 6

Annual Reports to Congress ..................................................................................................................... 7

Additional Goals ....................................................................................................................................... 7

Links to Broader Strategic Planning ............................................................................................................. 8

External Factors and Challenges ................................................................................................................... 8

Programmatic ............................................................................................................................................ 9

Political ..................................................................................................................................................... 9

Regulatory ................................................................................................................................................. 9

Technological .......................................................................................................................................... 10

Implementation ........................................................................................................................................... 10

Summary ..................................................................................................................................................... 10

Appendix A: Description of CSEPP National Benchmarks ....................................................................... 11

Benchmark 1: Administrative Support (ADM) .......................................................................................... 12

Benchmark 2: Alert and Notification (A&N) ............................................................................................. 13

iv CSEPP STRATEGIC PLAN

Benchmark 3: Automation (AUT) .............................................................................................................. 14

Benchmark 4: Communication Systems (COM) ........................................................................................ 15

Benchmark 5: Coordinated Plans (COP) .................................................................................................... 16

Benchmark 6: Emergency Operations Centers (EOC)................................................................................ 17

Benchmark 7: CSEPP Exercises (EX) ........................................................................................................ 18

Benchmark 8: Medical Preparedness (MED) ............................................................................................. 19

Benchmark 9: Qualified Personnel (PER) .................................................................................................. 20

Benchmark 10: Protective Action Strategies (PRO) ................................................................................... 21

Benchmark 11: Public Outreach/Education (POE) ..................................................................................... 22

Benchmark 12: Training Programs (TNG) ................................................................................................. 23

CSEPP STRATEGIC PLAN 1

Purpose of This Document The Government Performance and Results Act (GPRA), as amended, calls for Federal agencies

to improve their effectiveness and public accountability “by promoting a new focus on results,

service quality, and customer satisfaction” (Public Law 103-62, Section 2(b)(3).). Each agency is

tasked with developing a strategic plan to define its mission, goals to support that mission, and

specific performance measures and methods to track progress toward those goals. This strategic

plan for the Chemical Stockpile Emergency Preparedness Program (CSEPP) supports the

Department of Homeland Security (DHS) and Department of Defense (DOD) strategic plans. It

includes a comprehensive mission and vision statement; a general description of goals and

objectives and how these will be achieved; a description of performance measures (indicators)

used; and identification of key factors that could affect achievement of the general goals and

objectives. By posting the final draft document on the CSEPP Portal, the Army and the Federal

Emergency Management Agency (FEMA) solicited the views and suggestions of stakeholders

and customers who are potentially affected by this plan. This strategic plan will be revised and

updated periodically.

CSEPP History and Overview

Program Origin In 1985, Congress directed DOD to dispose of its lethal unitary (pre-mixed) chemical agents and

munitions while providing “maximum protection for the environment, the general public, and the

personnel involved.” In 1987, the U.S. Army released a draft Emergency Response Concept Plan

(ERCP), which presented a basis for the development of local emergency response programs and

examined various methods of emergency planning. The Army also prepared a Chemical

Stockpile Disposal Implementation Plan and requested funds to implement enhanced emergency

preparedness on-post and off-post for all eight chemical stockpile sites in the continental United

States. The effort to enhance emergency preparedness became the CSEP Program when FEMA

joined in that effort through a memorandum of understanding (MOU) signed in August 1988.

This MOU was reaffirmed in 1993 and revised in 1997 and 2004.

Army and FEMA Organizational Roles CSEPP is a project funded under the chemical demilitarization program, a major defense

acquisition program executed by the Army. Prior to demilitarization, CSEPP augments the

Army’s Chemical Materials Activity (CMA) whose mission is to safely store the stockpile by

ensuring maximum protection to its workers, the public, and the environment. The Assistant

Secretary of the Army for Acquisition, Logistics and Technology (ASA[ALT]) Joint Program

Executive Office—Chemical and Biological Defense (JPEO-CBD) is responsible for overseeing

CSEPP execution. The CMA executes day-to-day management of CSEPP, including upgrading

on-post response capabilities, developing on-post preparedness plans, conducting on-post

training, maintaining automation, and integrating on- and off- post capabilities. CMA stores its

remaining chemical stockpile at two locations: Blue Grass Army Depot (BGAD) in Kentucky

and Pueblo Chemical Depot (PCD) in Colorado.

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As part of FEMA, CSEPP resides within the Technological Hazards Division (THD) of the

National Preparedness Directorate. Under the MOU, FEMA takes the lead in assisting,

promoting, and evaluating preparedness in the off-post CSEPP communities. FEMA’s role is

executed through a national office at FEMA Headquarters and FEMA regional program offices

where the chemical installations are located. Pueblo is in FEMA Region VIII (based in Denver)

and Blue Grass is in Region IV (based in Atlanta).

Demilitarization Status As of 2013, approximately 90 percent of the Nation’s chemical stockpile has been destroyed. At

the remaining sites, the Assembled Chemical Weapons Alternatives (ACWA) program is

responsible for destruction of the stockpile, while CMA is responsible for continued safe storage

of the stockpile until it is destroyed.

Budgetary Process FEMA assists state and local governments in planning and validating their CSEPP requirements

and distributes funds to the states under cooperative agreements (CAs). The state and local

governments develop plans and capabilities to protect the public and provide financial and

performance reports, addressing the capability improvements realized through expenditure of

CSEPP funds.

Each year, state and local governments work with FEMA to develop two financial documents:

their annual budget request as part of the CSEPP CA and their CSEPP Life Cycle Cost Estimate

(LCCE). As a first step, state and local governments negotiate the budget for the upcoming fiscal

year with FEMA. The budget request is submitted to FEMA as part of a larger application for

review to support the annual grant award. Once submitted, the state and local governments use

the proposed budget to work with FEMA to determine the longer-term requirements, which the

Agency then validates and submits to the Army as part of the LCCE. These requirements, along

with FEMA CSEPP Office support requirements and requirements for the Army CSEPP

installations, are consolidated into a single CSEPP LCCE by the CMA CSEPP Office.

The CSEPP LCCE is incorporated into the CMA program office estimate (POE), which is used

as the basis for the Chemical Demilitarization Program input to the Army’s program objective

memorandum (POM). The Chemical Demilitarization Program POM input determines program

requirements for the next five program years and is submitted to the Undersecretary of Defense

for Acquisition, Technology, and Logistics for review. The first year of the POM is called the

budget estimate submission (BES). After the Office of the Secretary of Defense (OSD) Defense

Resources Board reviews and approves the POM/BES input, the BES is incorporated into the

President’s budget, which is transmitted to Congress in February, and the POM is incorporated

into the DOD Future Years Defense Program (FYDP).

Regulatory and Guidance Context The Army and FEMA manage these preparedness activities within their existing regulatory

frameworks. Homeland Security Presidential Directive (HSPD) 5, Management of Domestic

Incidents (February 28, 2003), directs implementation of the National Incident Management

System (NIMS). FEMA executes NIMS through a variety of guides and offices, including the

grant regulations at 44 CFR Part 13 that structure the management of annual CSEPP CAs. DOD

references HSPD-5 in describing overall DOD installation emergency response requirements in


DOD Instruction 6055.17, DOD Installation Emergency Management (IEM) Program (Change

1, November 19, 2010); the Army’s service-specific emergency preparedness objectives are

contained in Army Regulation (AR) 527-25, Army Emergency Management Program (March 13,

2009). For the Army chemical stockpile in particular, AR 50-6 and Army Directive 2013-03

provide additional Army direction for preparedness, response, reporting, and recovery.

The installation commander typically also executes duties under the National Contingency Plan

(40 CFR Part 300) as the On-Scene Coordinator (OSC). The OSC coordinates through the U.S.

Army Operations Center and the Federal Regional Response Team for assistance from other

agencies.

Use of Integrated Process Teams CSEPP’s success relies on interagency and inter-jurisdictional cooperation. To help carry out this

mission, CSEPP uses integrated process teams (IPTs), mandated under Public Law 104-201

(National Defense Authorization Act for FY 1997) and implemented under an Army/FEMA

Joint Memorandum for Record - Use of Integrated Process Teams (IPTs) (May 1998). IPTs are

used extensively to negotiate priorities and achieve consensus solutions. Community IPTs are

used at each site, together with functional IPTs and workgroups at the national level. In 2012,

with the transition to a two-site program, the Army and FEMA established a program

management team (PMT) consisting of management representatives from the Army and FEMA

HQ, FEMA Regions IV and VIII, the Blue Grass and Pueblo chemical depots, the state of

Colorado, the commonwealth of Kentucky, and Colorado and Kentucky counties to provide

oversight and an inclusive and coordinated decision-making process.

Participating Organizations Currently, 11 counties, two states, and two Army installations participate in CSEPP. Three of the

counties include areas within the immediate response zone (IRZ), which is the emergency

planning zone immediately surrounding the Army installation and extending to about six miles

from the chemical storage area. Beginning in FY 2013, the primary CSEPP stakeholders include

the following:

Headquarters

U.S. Department of Defense Joint Program Executive Office for Chemical and Biological

Defense

U.S. Army Chemical Materials Activity

U.S. Department of Homeland Security, Federal Emergency Management Agency

Pueblo, Colorado, Stockpile

FEMA Region VIII

State of Colorado

Pueblo Chemical Depot

Colorado Division of Homeland Security and Emergency Management

Pueblo County (IRZ)

Pueblo City-County Health Department


Richmond, Kentucky, Stockpile

FEMA Region IV

Commonwealth of Kentucky

Blue Grass Army Depot

Blue Grass Chemical Activity

Kentucky Division of Emergency Management

Clark County

Estill County (IRZ)

Fayette County

Garrard County

Jackson County

Jessamine County

Laurel County

Madison County (IRZ)

Powell County

Rockcastle County

CSEPP is managed as a Whole Community partnership that brings together FEMA, the Army,

many other Federal departments and agencies, state and local governments, volunteer

organizations, and private industry.

Program Closeout and Legacy Congress has specifically directed that no new funding will be provided for CSEPP communities

following the completion of stockpile elimination (50 U.S.C. Sec. 1521(e)(2)(B)). As destruction

activities progress, a continuing focus of the program ensures a smooth and efficient closeout

that recognizes the enduring value of emergency management for public health and safety. Until

the end of the program, as defined by law, the Army and FEMA will support the state and local

communities that receive program funding in preserving the capabilities developed during the

program and transitioning to a long-term profile.

At the six communities where CSEPP has closed out and funding has ceased, the program has

left the community better prepared to respond to all hazards, not just chemical emergencies.

Local jurisdictions now have advanced emergency response capabilities that include experienced

emergency management personnel, interoperable communications systems, protective equipment

for first responders, renovated and equipped emergency operations centers, and preparedness

outreach and public education programs.

At the national level, a number of capabilities and tools have been developed that are being

adapted to enhance other programs, including planning software, hazard analysis software,

training programs, integrated public alerting and warning systems, and lessons learned. The

program will continue to advance the state of the art in emergency preparedness and capture

lessons learned for the benefit of the wider emergency management community.


Mission and Vision

Mission CSEPP’s mission is to enhance existing local, installation, state, and Federal capabilities to

protect the health and safety of the public, work force, and environment from the effects of a

chemical accident or incident involving the U.S. Army chemical stockpile. This mission aligns

with Army and FEMA missions by protecting the CSEPP communities from potential chemical

accidents and incidents while the Army executes its objective of eliminating the aging chemical

munitions and chemical warfare materials. This mission is in line with international as well as

national policies.

Vision CSEPP’s vision is a fully prepared team of local, installation, state, and Federal professionals

developing and executing an effective emergency preparedness and response program. This

vision is realized through full development and seamless integration of Federal, state, and local

emergency response assets.

Performance Goals and Management Fulfillment of the CSEPP mission is executed and progress is measured through specific goals,

management processes, and performance measures. These include the CSEPP National

Benchmarks and other program goals, budgeting processes, and annual reports to Congress.

Benchmarks CSEPP has defined a core set of community preparedness capabilities (referred to as National

Benchmarks) that support the overall CSEPP mission. These benchmarks are a key tool in

CSEPP planning, programming, budgeting, and performance assessment. They articulate how

the program will achieve its mission and be assessed.

The benchmarks are achieved in different ways at different sites. The Pueblo and Blue Grass

sites differ significantly in terms of the nature of the stockpile, potentially impacted population,

number of local jurisdictions, and other factors. Thus, different resources are required at each site

to achieve the goal of maximum protection that underlies the benchmarks. Balancing support for

personnel, facilities, equipment, and other capabilities between the two sites can be challenging.

CSEPP strives to ensure that each community receives the resources it needs to be prepared

given the local hazards, existing capabilities, and other circumstances. The term used in program

administration to describe this flexible approach is “functional equivalency.”

Through the benchmarks, the Army and FEMA intend to sustain a high standard of readiness at

the installations and off-post communities and to retain the public’s confidence that the program

is achieving its mission in a fiscally responsible way.


The National Benchmarks include the following:

1. Administrative support for each CSEPP installation, state, and county necessary to

support their CSEPP preparedness activities.

2. Functioning alert and notification system extending across the installation and

appropriate off-post jurisdictions to communicate protective actions and other critical

response information to the public.

3. Functioning automation system for rapid exchange of chemical hazard modeling and

protective action analysis between the CSEPP installation, state and counties.

4. Functioning communications links between the CSEPP installation, state and county

Emergency Operations Centers (EOC)s, and the Joint Information Center (JIC) to support

coordinated implementation of response plans.

5. Coordinated plans for response to hazards from the stockpile for each CSEPP installation,

state, and county.

6. Functioning EOCs at each CSEPP installation, state, and county to support coordinated

implementation of response plans.

7. An exercise program that effectively tests integrated response capabilities and

preparedness.

8. A medical program to support on- and off-post medical preparedness among first

responder and receiver organizations for a chemical weapons accident or incident.

9. Specialized personnel, such as CSEPP manager, public information officer, planner, and

information technology specialist, to support CSEPP activities at CSEPP installations,

states, and counties.

10. Protective action strategy for each jurisdiction that is based on the threat from the

stockpile, consistent with response plans, and conforms to established CSEPP guidance.

11. A program for coordinated emergency public information and education, including a

public outreach/education program to enhance CSEPP awareness and familiarity with the

protective action strategy.

12. Training programs, consistent with CSEPP guidance, state and local training plans (for

off-post jurisdiction personnel) and Army certification requirements (for installation

personnel) that maintain proficiency of emergency services providers/responders and

CSEPP staff.

The benchmarks are detailed in Appendix A, including explanations of the intent, required

actions, and performance measures for each benchmark.

Program Budgeting and Controls The budgeting process is an integral part of CSEPP performance assessment and review. Budgets

are developed to address requirements that have been identified in order to meet the benchmarks.

CSEPP LCCEs and CSEPP CAs are two essential elements of this process. FEMA issues CSEPP

CA Guidance to assist CSEPP states in developing their funding proposals.


LCCEs

The LCCE, organized by the program benchmarks, is revised annually by the local, depot, state,

and Federal CSEPP offices based on the latest guidance from OSD. FEMA is responsible for

validating the local and state requirements. The Army is responsible for compiling and

submitting the document to OSD.

CAs

The CSEPP CA guidance establishes the guidelines under which FEMA CSEPP distributes funds

to the states to support stockpile emergency preparedness. Under the CAs, each state identifies

its needs, develops proposed projects to meet those needs, requests funds from FEMA, and

disburses these funds to the various state offices and local governments involved in the proposed

projects. The states are responsible for financial accountability, adherence to Federal grant

management rules, and providing quarterly financial reports and narrative performance reports

addressing the capability improvement realized through the funds. Local jurisdictions (counties)

are sub-grantees to the state grantee.

Annual Reports to Congress Annual Reports to Congress are compiled in response to requirements set forth in 50 U.S.C.

§1521 (i)(2)(A)-(D). In that statute, Congress requires the following:

“A site-by-site description of the construction, equipment, operation, and dismantling of

facilities…used to carry out the destruction of agents and munitions under this section,

including any accidents or other unplanned occurrences associated with such construction

and operation.”

“A site-by-site description of actions taken to assist State and local governments…in

carrying out functions relating to emergency preparedness and response….”

“An accounting of all funds expended….”

“An assessment of the safety status and the integrity of the stockpile of lethal chemical

agents and munitions.”

The annual reports to Congress review the program’s level of success in achieving the previous

year’s performance goals; evaluate the performance plan for the current year in light of last

year’s successes or failures; provide explanations for failures to meet goals; and include

summaries of program evaluations completed during the preceding year. This analysis is

primarily based on three factors: the Community Profile developed bi-annually by each

community IPT, the results of the annual CSEPP exercise in each community, and each

community’s annual CA, which includes workplans for all CSEPP-funded state and local

positions.

Additional Goals

Adaptation to Changing Environment

The program continuously adapts to maintain an appropriate level of preparedness in light of

changing circumstances. As chemical agents and materials are destroyed, the overall risk to the

nearby communities declines. Changes in risk may drive changes in planning and priorities.

Other factors that may affect the program include demographic shifts, changes in environmental

and health standards, and changes to emergency management doctrine and emergency plans.


Preservation and Transfer of Capabilities

CSEPP ends at each site when the stockpile is destroyed and will end overall when the last site is

finished. As the program approaches these terminations, one goal is to transfer CSEPP

capabilities and lessons learned to homeland security initiatives at the local, state, and Federal

levels. The states and counties participating in CSEPP have been recognized as having developed

robust emergency response capabilities that are models across the Nation for response to all

hazards. The Army and FEMA will continue to facilitate the transfer of CSEPP lessons learned

and capabilities to the broader scope of homeland security and development of comprehensive

all-hazards preparedness strategies.

Links to Broader Strategic Planning FEMA CSEPP operates within a strategic planning structure established by the President, DHS,

and FEMA. Presidential Policy Directive (PPD) 8, National Preparedness, is dedicated to

strengthening the security and resilience of the United States through systematic preparation for

the threats that pose the greatest risk to the security of the nation. It is also aimed at facilitating

an integrated “all-of-nation” approach to preparedness. Under PPD-8, DHS has developed the

National Preparedness Goal, which encompasses a set of national preparedness frameworks that

provide for coordinating structures to align key roles and responsibilities to deliver the necessary

capabilities in an emergency.

According to the FY 2012–2016 DHS Strategic Plan, DHS’s mission is to “achieve a safe,

secure, and resilient homeland… [and specifically] ensure resilience from disasters.” Two DHS

goals support this mission: (1) enhance national preparedness through a Whole Community

approach to emergency management and (2) ensure effective emergency response. FEMA’s

2011–2014 Strategic Plan identifies the agency’s mission as “support our citizens and first

responders to ensure that…we work together to build, sustain, and improve our capability to

prepare for, protect against, respond to, recover from, and mitigate all hazards.” Important to

preparedness are two initiatives identified in the plan: (1) a “Whole Community” approach to the

practice of emergency management nationally that aims to include volunteer, faith- and

community-based organizations, the private sector, and the public and (2) building unity of effort

and common strategic understanding among the emergency management team.

Through CSEPP, CMA’s vision helps the Army create “a safer tomorrow by making chemical

weapons history.” Indeed, the CSEPP is expressly embedded in the CMA mission to “enhance

national security by storing and ultimately eliminating U.S. chemical warfare material (CWM),

while protecting the workforce, the public and the environment to the maximum extent.”

External Factors and Challenges While the Army and FEMA strive to execute CSEPP using available resources budgeted to the

program, key external factors (including programmatic, political, regulatory, and technological

issues) can have a significant effect on the achievement of these goals.


Programmatic The installations and local and state governments must maintain a fully operational CSEPP effort

through the end of disposal operations at each stockpile site. However, the nature of the disposal

operations entails some uncertainty as to how quickly they will conclude. Delays and extensions

of chemical disposal operations will require continued CSEPP operations, increasing the cost of

the program beyond past projections; similarly, disposal operations may run ahead of schedule

leading to an earlier end to CSEPP at a given site. Program managers must continuously monitor

disposal operations progress and adjust planning for CSEPP accordingly.

Retention of qualified staff through the end of the program will be an ongoing challenge. The

reduction in the number of CSEPP sites has been accompanied by a reduction in the pool of

talent and expertise available for program support activities. For example, in the past, staff from

all CSEPP sites routinely supported federally mandated CSEPP exercises. The remaining two

sites now only have support of staff from one other site versus several. CSEPP now uses former

government and local emergency managers as subject matter experts (SMEs) to support the

program, including the evaluation of exercises.

Another challenge will be maximizing CSEPP’s legacy as the program reaches its end.

Participating in CSEPP has ensured that current and former CSEPP communities are better

prepared to respond to all hazards. Careful planning and preparation will be required to ensure

that facilities, equipment, training, and knowledge gained through CSEPP are maintained and

applied in useful ways following the end of the program.

Political Congress ultimately funds CSEPP through defense appropriations and will understandably

question the Army and FEMA, as necessary, as to the execution of those funds. Increasing

expectations for the Army and FEMA to provide particular capabilities for off-post communities

may arise without accompanying resources. This could compromise the Army’s and FEMA’s

ability to succeed at its core mission.

Public involvement with local, state, and Federal legislative representatives will continue

through the program’s execution. In addition to maintaining a strong relationship with the public,

rapid and continuous communication with these representatives is key to ensuring that the

Army’s and FEMA’s actions are understood.

As a federally funded program, CSEPP is subject to the legislative appropriations process and

will be affected by budgeting priorities and constraints from year to year. It is incumbent on

program managers to ensure that program needs and requirements are clearly articulated to

higher Headquarters, congressional offices, and the public. At the same time, program managers

must be cognizant of budgetary trends and use best efforts to achieve program goals with the

resources available.

Regulatory CSEPP historically has adopted new standards and doctrines that affect emergency preparedness,

including chemical agent exposure guidelines and presidential directives on incident

management and emergency response. CSEPP will continue to coordinate with the Department


of Homeland Security, Department of the Army, Army Public Health Command, Environmental

Protection Agency, Centers for Disease Control and Prevention, and other agencies as required

to ensure CSEPP is consistent with the most current standards, directives, and guides.

Technological Emergency preparedness and response capabilities must be maintained to achieve full

operational readiness through the disposal of chemical agents and materials. As the CSEPP effort

has extended longer than had been expected, some equipment procured by counties and states

has become obsolete, new systems have become available, and new standards and protocols have

been adopted. The overall costs and benefits of replacing or supplementing current technology

with new systems must be weighed to identify the true impact on emergency preparedness and

response capabilities.

Implementation CSEPP implements the program goals as detailed in this plan and the CSEPP National

Benchmarks through a series of guidance documents. These include, in addition to overall

program guidance, specialized, detailed guidance in areas such as grants management, public

affairs, medical preparedness, protective actions for the public, and conduct of exercises.

Guidance is developed with the participation of all elements of the CSEPP community.

Summary The CSEP Program is a key component of fulfilling DOD’s statutory mandate to destroy the

nation’s stockpile of lethal unitary chemical agents and munitions while providing maximum

protection for the environment, the general public, and the personnel involved. CSEPP builds

capabilities and coordination among Army, FEMA, state, local, and other Federal agencies for

response to a chemical weapons accident or incident. In doing so, CSEPP will leave a legacy of

capabilities, tools, techniques, and training to provide a lasting benefit for participating

jurisdictions and the wider emergency preparedness community. The strategic directions

established in this plan are implemented through specific guidance, administrative and budgeting

mechanisms, and a standard set of benchmarks for measuring progress.


Appendix A: Description of CSEPP

National Benchmarks The following material describes the 12 CSEPP National Benchmarks. Each description contains

the following elements:

Intent describes why the Army and FEMA established this benchmark. Each benchmark

contributes to the overall goal of providing maximum protection.

Actions Required identifies what specific, minimum activities are necessary to achieve

compliance with the benchmark for each CSEPP jurisdiction. The Army and FEMA

provide the resources and support to enable these activities.

Performance Measures list the general tools that are used by the Army and FEMA to

assess the status of the benchmark. There may be additional community-specific tools

(e.g., reports) that support this assessment.

These descriptions have been incorporated into the CSEPPWebCA application to enable their

use at the state and local level in the preparation of annual CA applications and quarterly

narrative reports, as well as the development of staff work plans. More detailed information on

the elements of each benchmark can be found in the CSEPP Program Guidance.


Benchmark 1:

Administrative Support (ADM)

Administrative support for each CSEPP installation, state, and county necessary to support their CSEPP preparedness activities.

Intent

Successful execution of CSEPP relies on the day-to-day performance of a strong core of

professionals managing the program at the installations and at the state, county, and Federal

levels. Program managers conduct deliberate evaluations of requirements needed to sustain a

maximum protection capability. The states’ requirements are examined against LCCEs, validated

by FEMA, and funded by the Department of the Army. The installations must similarly evaluate

their needs and submit budgets through the CMA, which are then funded by the Department of

the Army. The process of planning, programming, and budgeting CSEPP funds must be

accomplished promptly and efficiently while ensuring that the funds are executed against

validated requirements.

Actions Required

Support CSEPP by developing staff work plans, purchasing supplies, maintaining

equipment inventory, administering contracts, and monitoring projects.

Create and negotiate a budget within FEMA regions for the next fiscal year by creating

and executing a budget package using CSEPPWebCA software in accordance with the

annual CSEPP CA Guidance.

Implement the current fiscal year budget award by maintaining current readiness and

initiate new projects as specified within the current budget award.

Monitor program progress; request budget amendments and extensions, as required; and

create and submit timely quarterly reports on financial and program progress.

Submit closeout documentation for prior-year CAs.

Performance Measures

The on-post and off-post communities’ ability to meet and sustain full compliance to this

benchmark’s standards, as measured by the Community Profile process.

Timely programming and budgeting actions and release of annual funding to the grantees

addressing all validated requirements.


Benchmark 2:

Alert and Notification (A&N)

Functioning alert and notification system extending across the installation and appropriate off-post jurisdictions to communicate protective actions and other critical response information to the public.

Intent

A well-designed and maintained alert and notification system enables officials to provide timely,

appropriate warnings in the event of a chemical incident or accident. The program provides an

automated, networked, 24-hour operational capability to warn the public of a chemical event, to

confirm that an incident or accident has occurred and to inform them when it is safe to return to

their homes. This capability, integrated appropriately with state and Federal systems, includes

the use of sirens, public alert radios, highway message reader boards, and other community

methods in a layered approach aimed at reaching the greatest percentage of the population. In

addition, CSEPP managers must test and evaluate this capability to ensure it is adequate to warn

all threatened populations on the installations and throughout the off-post hazard zones.

Actions Required

Develop and maintain alert and notification procedures addressing specific roles and

responsibilities, including initial activation of warning systems, selection of warning

messages, confirmation of activation, repetition of warnings, and issuance of all-clear

messages.

Ensure CSEPP personnel coordinate chemical event notifications and other relevant

information between installation and community EOCs in compliance with Army

guidance and local MOUs.

Develop and maintain scripted, system-specific warning messages based on the site’s

chemical event emergency classification system and a predetermined protective action

strategy.

Maintain the ability to control the alert and notification from two systems.

Maintain a 24-hour operational capability for both initial and ongoing alert and

notification activities.

Maintain a current program of regular preventive maintenance and testing of all elements

of the primary and alternate alert and notification systems.

Evaluate the effectiveness of the alert and notification system periodically to ensure that

alert signals and notification messages in each area of the IRZ are of sufficient volume to

be heard above ambient noise levels.


Results of regular system testing and the frequency and duration of service interruptions.

Each state’s and installation’s ability to meet and sustain full compliance to this


Performance at the annual CSEPP and quarterly Chemical Accident or Incident Response

and Assistance (CAIRA) exercises and real-world emergency situations.


Benchmark 3:

Automation (AUT)

Functioning automation system for rapid exchange of chemical hazard modeling and protective action analysis between the CSEPP installation, state, and counties.

Intent

Promptly and accurately detailing a common operating picture for all community responders

based on hazard prediction for a chemical accident or incident is a daunting task. It requires a

validated and verified automation tool that can be employed at the installation and county level

without excessive training requirements. The automation software must be able to accurately

predict the projected path and timing of a chemical agent plume over the local terrain in all

weather conditions and take into account protective action strategies, daily work plans, and event

alert and notification procedures. These decision support tools provide installation and county

emergency managers with valuable data formatted for rapid assessment and decisions, which can

then be communicated over the alert and notification system to the protective zones and EOCs.

Finally, the system must be supported by a network of meteorological towers, interconnected

servers and other hardware, and personal computing devices to enable personnel to provide,

access, and analyze critical information.

Actions Required

Adopt an integrated automation system that supports the accredited CSEPP hazard

modeling software, the installation’s and community’s protective action recommendation,

determination and alert and notification protocols, and event notification and

management to meet specific community needs.

Ensure that the automation system is compatible with jurisdictional emergency

management software for hazard prediction, hazard communication, and protective action

recommendations.

Ensure that the automation system meets with Army, state, and county information

technology standards and requirements for hardware and software and incorporates

appropriate security features.

Maintain the automation network and associated instrumentation, providing the

maximum practical reliability when used among the installation EOC, the state, and all

off-post local jurisdictions.





Performance at the annual CSEPP exercise and, as applicable, quarterly CAIRA exercises

and real-world emergency situations.


Benchmark 4:

Communication Systems (COM)

Functioning communications links between the CSEPP installation, state and county EOCs, and the JIC to support coordinated implementation of response plans.

Intent

Delivery of information from the installation to county and state EOCs is a critical function to

support command and control of emergency response and recovery. Emergency data and

warning messages need to be communicated within minutes after an event, allowing EOCs to

communicate hazard information and associated actions promptly to the public so they can take

the necessary protective actions. Communication systems must be maintained to provide this

capability around the clock, without failure, connecting Federal, state, and local emergency

managers with a seamless and continuous thread of information. Such systems include

interoperable public safety radio, telephones, and dedicated hotlines.

Actions Required

Maintain primary and alternative direct communications systems, providing the

maximum practical reliability when used among the installation EOC, the state, and all

off-post local jurisdictions.

Use the communication systems to provide public alert and notification and the delivery

of other emergency-related public information.

Ensure the availability of backup power for its communications systems and maintain 24-

hour operational capability for its communications links.

Develop, maintain, and adhere to standard operating procedures for sending, receiving,

recording, disseminating, and validating communications.

Develop and implement a program of regular preventive maintenance of all

communications equipment, including a program of regular testing of all communications

links.








Benchmark 5:

Coordinated Plans (COP)

Coordinated plans for response to hazards from the stockpile for each CSEPP installation, state, and county.

Intent

Installation, county, and state emergency planners prepare coordinated plans to respond to all

potential hazards and related requirements, ensuring that all personnel and resources that have a

role in responding to chemical accidents and incidents are taken into account. These plans

outline roles and responsibilities; relationships between Federal, state, and local agencies; and

resources and actions required. CSEPP plans are updated periodically and tested during annual

exercises to ensure all requirements are addressed and all personnel understand their roles and

responsibilities. CSEPP emergency operations plans should be integrated with other emergency

planning and be consistent with CSEPP and other applicable Federal, state, and local guidance.

Actions Required

Identify assignments for primary and support roles and responsibilities for all key

emergency functions.

Develop procedures for implementing responses to a chemical munitions accident or

incident for all emergency officials in public, private, and not-for-profit-sector

organizations.

Develop procedures for local implementation of the JIC/JIS [Joint Information System]

concept for emergency public information.

Describe the standard chemical event emergency notification systems being used, as well

as appropriate response actions based on each notification level.

Develop policies for the local implementation of public alert and notification system, in

accordance with the local protective action strategy.

Specify the relevant emergency personnel, units, and organizations and list associated

equipment/systems assigned to support response operations.

Maintain letters of agreement, mutual aid plans, and any memorandums of agreement or

MOUs between local officials and other public, private, and not-for-profit organizations

as needed to provide or direct resources to support a response.

Conduct regular community review of plans and procedures to ensure synchronization.







Benchmark 6:

Emergency Operations Centers

(EOC)

Functioning EOCs at each CSEPP installation, state, and county to support coordinated implementation of response plans.

Intent

A functioning EOC is the nerve center of any response to a chemical accident or incident,

providing direction and support to the emergency responders. As such, installations, counties,

and states must ensure their EOCs are adequately equipped to support communication to and

from higher and lower agencies, allowing personnel to warn the general public, plan and execute

required protective action strategies and response actions, and coordinate the reentry and

recovery of areas affected by a chemical accident or incident.

Actions Required

Provide adequate office furniture, equipment, and supplies to support operations and

provide adequate storage space for medicines, food, additional office supplies, and any

other equipment needed.

Provide sanitary facilities and, if required, sleeping accommodations adequate for half the

total assigned staff at a time.

Provide an emergency power source with an independent fuel supply, adequate for

operating all necessary equipment.

Provide a potable water supply that is adequate to support the fully staffed EOC and not

dependent on commercial power or susceptible to disruption by disaster conditions.

Provide a food supply adequate to feed the full staff for several days, which may be

delivered from outside and/or stocked within the EOC.

Provide a regular schedule for testing and maintaining the EOC equipment.







Benchmark 7:

CSEPP Exercises (EX)

An exercise program that effectively tests integrated response capabilities and preparedness.

Intent

A well-developed exercise program evaluates and demonstrates the abilities of communities and

installations to respond to chemical accidents and incidents. Exercises are an important element

in evaluating the implementation of emergency response plans and assessing the adequacy of

plans and procedures, the capabilities of Federal, state, local, and installation response elements,

the availability of equipment, and coordination among response elements. Exercises also identify

needed improvements and possible new funding requirements. Specific guidance on CSEPP

exercise planning, conduct, and evaluation is provided in the CSEPP Exercise Policy and

Guidance.

Actions Required

Prepare and submit an annual exercise date two years in advance of the current year to

the CSEPP Training and Exercise Working Group.

Assign adequate installation, state, and county representatives to serve on the exercise

planning teams for each exercise. Develop appropriate ground rules and extent of play

agreements to ensure robust exercise activity and demonstration of exercise objectives.

Develop an extent of play agreement (XPA) for each exercise to provide the basis for

scenario development and document commitments to exercise participation. The XPA

begins with the assumption that the community will fully respond according to their plans

and will describe any deviations, such as simulations, out-of-sequence play, or non-

participating organizations.

Ensure that installation commanders and community officials support all exercises with

reliable and qualified evaluators.




Annual CSEPP exercise, after-action report, and corrective action plan executed in

accordance with Program Guidance and Exercise Policy and Guidance.


Benchmark 8:

Medical Preparedness (MED)

A medical program to support on- and off-post medical preparedness among first responder and receiver organizations for a chemical weapons accident or incident.

Intent

CSEPP installations and communities must be prepared to triage, treat, and transport casualties

resulting from a chemical accident or incident. This medical capability is based on plans and

procedures that detail the medical concepts of operations and coordinated response actions to

prepare for and respond to a chemical accident or incident. These plans include anticipated

response, medical resources, training, and exercise actions. Medical training and exercises,

including the use of medical countermeasures and personnel/patient decontamination, are vital

parts of state and local emergency preparedness. Specific medical guidance is provided in

CSEPP guides and evaluation tools developed by the program.

Actions Required

Develop regular training for first responders and first receivers to perform specified

patient care activities, such as screening, triage, treatment, decontamination, transport,

disposition, and patient tracking.

Develop medical emergency operations that are in accordance with CSEPP guidance and

Federal, state, local, and generally accepted standards for patient care and worker

protection.

Coordinate medical plans and procedures, as appropriate, with the CSEPP alert and

notification system, JIC, and JIS.

Ensure that medical personnel participate in community response and recovery planning

and community-based exercise and evaluation programs.







Benchmark 9:

Qualified Personnel (PER)

Specialized personnel, such as CSEPP manager, public information officer, planner, and information technology specialist, to support CSEPP activities at CSEPP installations, states, and counties.

Intent

Trained and qualified personnel are vital to the successful sustainment of installation, county,

state, and Federal response capabilities. Plans, procedures, and equipment are useless without

people overseeing the effort who are prepared to implement procedures and coordinate response

actions. These CSEPP-funded personnel run the day-to-day execution of the program, including

the periodic program management tasks required to ensure that emergency responders are

adequately trained and equipped to complete their missions.

Actions Required

Establish an administrative system for performing day-to-day operations.

Ensure employee job descriptions are developed as needed, detailing each position’s

specific assignments in the event of an emergency or disaster.

Develop and update employee work plans yearly as part of the CA package for program

funding.

Ensure that vacancies occurring in CSEPP-funded positions are promptly filled with

qualified personnel.




Quarterly performance reports for off-post jurisdiction personnel (derived from annual

workplans) and completed and submitted within the CSEPPWebCA software.


Benchmark 10:

Protective Action Strategies (PRO)

Protective action strategy for each jurisdiction that is based on the threat from the stockpile, consistent with response plans, and conforms to established CSEPP guidance.

Intent

Each community surrounding a chemical stockpile site has a unique topography, infrastructure,

and set of capabilities, and each installation holds a unique set of chemical agents and/or

munitions. Because of these differences, each site requires a unique protective action strategy

that enables communities to take the necessary actions to protect themselves from exposure to

chemical agents. These strategies account for plume pathways, population density, highway

network, evacuation times, weather, and other variables to ensure the maximum possible

protection for people in potential hazard areas. In order to be successful, the protective action

strategy must also be communicated, understood, and executable by the community.

Actions Required

Develop a coordinated, local decision-making process for selecting and implementing

protective actions that can be rapidly implemented on a 24-hour basis.

Ensure the strategy is based on scientifically sound risk assessment methodology for

chemical warfare agents.

Address the selection and implementation of access and traffic control points; criteria for

combining evacuation and/or in-place sheltering as public protection measures; and

protective measures for populations with access and functional needs.

Identify procedures for the safety and protection of emergency workers and measures to

address potential impacts on domesticated animals, crops, and water supplies.

Regular review and adjustment as needed of protective action strategies, in light of

changes in risk, infrastructure, standards, or other factors that may affect choice of

protective measures.







Benchmark 11:

Public Outreach/Education (POE)

A program for coordinated emergency public information and education, including a public outreach/education program to enhance CSEPP awareness and familiarity with the protective action strategy.

Intent

The role of public outreach efforts is to improve the public’s and the news media’s awareness of

CSEPP. Getting CSEPP information to the public and the media has two different but

complementary aspects. The first requirement is to improve the public’s awareness of CSEPP

and their (the public’s) role during an emergency through various methods, such as outreach

offices, phone and mail communications, and the Internet. The second requirement is keeping the

public and the media informed during an actual chemical accident or incident. An informed and

active public is a strong partner.

Actions Required

Develop and implement a Joint Information System that will function as an information

sharing and mutual support network for public affairs officers.

Develop a JIC plan that will help participating jurisdictions to coordinate and disseminate

rapid and accurate information during an emergency from a central facility to media

outlets and the public.

Develop and implement a public education program to increase the public’s knowledge

of stockpile hazards, sources of emergency information, and emergency protective

actions.






Ongoing assessments of community awareness of CSEPP, the nature and risks associated

with the chemical stockpile, how to obtain emergency information, and potential actions

to take in a chemical emergency.


Benchmark 12:

Training Programs (TNG)

Training programs, consistent with CSEPP guidance, state and local training plans (for off-post jurisdiction personnel) and Army certi fication requirements (for installation personnel) that maintain proficiency of emergency services providers/responders and CSEPP staff.

Intent

Because of the unique hazards created by the storage and elimination of chemical weapons,

CSEPP personnel and emergency responders must maintain specialized proficiencies to respond

to chemical accidents or incidents. This can include practice with hazard prediction modeling

tools, use of personal protective equipment and medical countermeasures, sheltering-in-place

drills, decontamination procedures, communications exercises, and other technical aspects of

incident command, hazardous material response, and emergency medical treatment. In addition,

CSEPP training encompasses preparedness activities, such as exercise evaluation.

Actions Required

Conduct training needs assessments to inventory and track the needs and skill levels of

CSEPP staff requiring specific training or specialized skills.

Identify training coordinators for each installation, state, and county to ensure annual

training is available as required, that appropriate training materials and measurement

tools are used, and that appropriate training records are maintained.

Employ competent training instructors based on the needs assessment, ensuring that all

training is job-specific and documented.

Assess the effectiveness of each training course and each trainee’s performance and

ability to meet course objectives.




Availability and quality of training materials for installation, state, and county

responders.


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