APPENDIX J EMERGENCY PLANNING AND RESPONSE
The purpose of this appendix is to summarize emergency planning and response activities established to mitigate the consequences of major emergencies and natural disasters at the Lawrence Livermore National Laboratory (LLNL) and the Sandia National Laboratories, Livermore (SNL, Livermore). This summary covers four topics: Regulatory Background, which identifies the federal regulations upon which the emergency preparedness programs are based; Local, State, and Federal Emergency Response, which describes the responsibilities of government agencies as well as the LLNL and SNL, Livermore involvement with state and local emergency planning organizations; and LLNL Emergency Preparedness and SNL, Livermore Emergency Preparedness, which discuss planning and response, emergency management, functional response, emergency organization and responsibilities, mutual assistance (between the Laboratories and from outside entities), and training and exercises. Figure J-1 identifies the location of additional information on emergency response and related topics within the EIS/EIR.
J.1 REGULATORY BACKGROUND
Federal regulations require the establishment of emergency planning and response to radiological or hazardous incidents. These regulations include 40 C.F.R. sections 335, 265, and 302.6, and 29 C.F.R. section 1910.120, which deal with SARA Title III Emergency Planning and Notification, continuous planning, release reporting, and hazardous waste operation and emergency response. In addition, DOE provides specific direction in DOE Orders 5000.3A, 5500.2B, 5500.3A, 5500.1B, and 5500.10 (DOE, 1990a, 1991a, 1991b, 1991c, 1991d) for implementing emergency preparedness for a variety of events, including earthquakes.
To meet federal requirements, both LLNL and SNL, Livermore have developed sitewide emergency preparedness plans. These programs coordinate and integrate all aspects of response, including notification, protective actions, and mutual assistance; specify the methods employed; and provide the framework and support for ongoing maintenance of the emergency response programs.
J.2 LOCAL, STATE, AND FEDERAL EMERGENCY RESPONSE
The federal government has established a Federal Radiological Emergency Response Plan (50 Fed. Reg. 46,542, 1985) under the management of the Federal Emergency Management Agency for responding to incidents involving radioactive materials. For incidents involving other hazardous material, the EPA planning requirements of 40 C.F.R. (40 C.F.R. section 355, 1990) provide for National Response Teams to assist if needed.
The California State Office of Emergency Services is responsible for the development and implementation of state emergency preparedness plans. The City of Livermore and Alameda County also have developed plans and designated resources to respond to incidents. LLNL, SNL, Livermore, the State of California, Alameda County, and the City of Livermore have formed a local community emergency management planning group to coordinate the emergency response plans of these organizations. This group has been meeting on a quarterly basis and is discussing items such as Protective Action, Standard Notification Form, and Evacuation Route Planning. Emergency plans cover a wide range of incidents beyond hazardous material and radioactive material releases (such as explosions, fire, earthquake, and sabotage).
DOE is responsible for ensuring that emergency plans and procedures are in place for all nuclear facilities, operations, and activities under its jurisdiction (DOE, 1991b). For LLNL, DOE San Francisco field office ensures that an emergency plan has been developed and that the headquarters section responsible for emergency planning has reviewed and concurred with the plan. DOE Albuquerque field office has this responsibility for SNL, Livermore. In addition to overseeing the development of plans by the operators of LLNL and SNL, Livermore, these field offices are required to develop site-specific plans for response to incidents at LLNL and SNL, Livermore. Finally, these DOE field offices are required to determine and maintain the resources needed to operate their emergency preparedness programs.
J.2.1 General Responsibilities and Resources of Federal Agencies
The Director of the Federal Emergency Management Agency has "the responsibility for establishing federal policies for and coordinating, all civil defense and civil emergency planning, management, mitigation, and assistance functions of executive agencies" by Executive Order 12148, July 20, 1979. As a result of this Executive Order, the Federal Radiological Emergency Response Plan was published (50 Fed. Reg. 46,542, 1985). The following paragraphs describe agency responsibilities established by the Federal Radiological Emergency Response Plan.
DOE is responsible for conducting and managing federal onsite actions at LLNL and SNL, Livermore; monitoring, evaluating, advising, and providing assistance, if required; developing and/or evaluating recommendations for state, county, and local officials on public protective action measures; coordinating with the state the release of information to the public, Congress, and the Executive Branch; and initiating response activities with state concurrence. In conjunction with the Environmental Protection Agency, DOE is responsible for coordinating federal radiological monitoring and assessment. Jointly with the Federal Emergency Management Agency, DOE is responsible for recommending offsite public protective action measures to state, county, and local officials.
The EPA is responsible for providing intermediate and long-term response. The Federal Emergency Management Agency is responsible for coordinating federal assistance to state and local governments, and providing logistical support to federal agencies.
For accidents involving radioactive materials or wastes, DOE maintains Radiological Assistance Teams with the Radiological Assistance Program. There are eight regional offices established in the United States with Radiological Assistance Teams ready to support on-scene command and control maintained by state, tribal, or local agencies.
For nonradiological emergencies, DOE or the Federal Emergency Management Agency can procure and coordinate assistance for the appropriate federal agency, as required.
Federal Emergency Management Agency response teams will establish a joint operations center to coordinate activities of federal, state, and local agencies.
DOE resources, such as the Federal Radiological Monitoring and Assessment Center (FRMAC), would be available to provide assistance and support to state, county, and local officials as part of the Radiological Assistance Program. This assistance would include monitoring teams capable of evaluating the extent of offsite radiological contamination, the amounts of radioactive materials released to the environment, and the impact of plume exposure and ingestion pathway exposure to the population. In the event of a transportation incident, DOE may assist state or local authorities with identification of vehicle or property contamination, decontamination methods, and medical advice for contaminated injuries as part of the Radiological Assistance Program. If required, DOE's Atmospheric Release Advisory Capability can provide predictions for the potential downwind, offsite spread of airborne contaminants.
J.2.2 General Responsibilities of State and Local Government
The California State Office of Emergency Services is the lead agency responsible for the development and implementation of state emergency preparedness plans. If there is an offsite release of hazardous or radioactive materials from LLNL or SNL, Livermore, the state will assist Alameda and San Joaquin Counties. The California State Office of Emergency Services has set up a local community emergency planning group to ensure coordination of emergency plans between LLNL, SNL, Livermore, Alameda and San Joaquin Counties, the City of Livermore, and the state.
The State Office of Emergency Services ensures that state agencies have trained personnel and resources in place to respond to emergencies.
Alameda and San Joaquin counties have developed emergency response plans for hazardous materials as required by SARA, Title III. Alameda County's plan also deals with the possible release of radioactive materials. The county emergency response organizations are the lead agencies in situations involving the offsite release of hazardous or radioactive material. They are responsible for coordinating state, county and city government responses to these situations.
The City of Livermore has developed and implemented an emergency plan for the accidental release of hazardous or radioactive material from LLNL or SNL, Livermore. The City of Livermore Civil Defense–Emergency Services is responsible for coordinating planning with the Alameda County Office of Emergency Services. It is also responsible for assisting other responding agencies in locating and providing needed equipment and resources.
Capabilities of State and Local Governments
The State Office of Emergency Services makes the resources of other state agencies available to affected counties as needed, in the event of an offsite release of hazardous or radioactive material. The California Highway Patrol assists in evacuations, notification, communications, and secures the site involved. The California State Department of Health Services can provide trained personnel capable of assisting staff members with monitoring and decontamination, the evaluation of the extent of any contamination, and ingestion pathway monitoring (SNL, Livermore, 1990a).
Alameda and San Joaquin counties can provide additional police to secure the site, alert nearby residents, and assist in evacuation. The counties can also request assistance from various city emergency teams.
The City of Livermore has fire and police services available to assist Alameda County in offsite response, and if requested can assist LLNL or SNL, Livermore. The City of Livermore Civil Defense-Emergency Services organization is capable of assisting other offsite agencies in procuring and placing needed equipment and resources, and in providing updates to city officials. The Civil Defense-Emergency Services Office can activate the Radio Amateur Civil Emergency System if primary communication links become unavailable (SNL, Livermore, 1990a).
J.3 LLNL EMERGENCY PREPAREDNESS
The LLNL Emergency Preparedness Plan and Emergency Preparedness Plan Implementing Procedures incorporate the LLNL Livermore site and LLNL Site 300, and include the organizational structure, response procedures, and functional roles of responding personnel. The focus of the plan is to provide a coordinated response to incidents involving more than one of the basic emergency service elements and to incidents that may be a threat to the health and safety of personnel and the general public. These incidents include, but are not limited to, earthquakes and other natural events, the inadvertent release of hazardous chemicals or radiation, fires, explosions, transportation-related offsite incidents involving LLNL, civil disturbances, and terrorism (LLNL, 1990a).
Emergency preparedness at LLNL relies upon the capabilities and resources of onsite organizations, the accessibility of emergency response equipment in multiple locations, and a communication system with multiple redundancy. Additionally, offsite support is available through mutual aid agreements with the local community.
J.3.1 Responsibilities and Authority for Planning
The Laboratory Director is ultimately responsible for emergency preparedness; however, responsibility for planning and implementing emergency preparedness is delegated to the Emergency Preparedness and Response Program Leader. The Program Leader ensures that the emergency response organization is prepared to perform the functions described in the Emergency Preparedness Plan and the Emergency Preparedness Plan Implementing Procedures, including those functions relating to ongoing planning and program maintenance.
The Program Leader also is responsible for ensuring that the LLNL Emergency Preparedness Plan and Emergency Preparedness Plan Implementing Procedures are appropriate and adequate for current LLNL operations. This is accomplished through review of Safety Analysis Reports, Building Safety Analysis Summaries, Facility Safety Procedures, Self-Help Plans, and annual internal hazard assessments or self-appraisals by persons not directly responsible for program administration. The Department of Energy also plays an oversite role in ensuring the adequacy of these documents and internal assessments.
Hazard assessments provide the basis for emergency planning requirements and prescribe the operational emergency strategies. The requirements for the hazard assessments are provided in the LLNL Health and Safety Manual (LLNL, 1990a). In response to these review findings, the Emergency Preparedness Plan and the Emergency Preparedness Plan Implementing Procedures are reviewed annually, changes are coordinated, revisions published, approvals acquired, and appropriate controlled distribution is carried out.
J.3.2 LLNL Emergency Response Resources
To support localized response capabilities, LLNL is divided into 22 self-help zones (15 at the LLNL Livermore site, and 7 at LLNL Site 300). Response is guided by implementation of Self-Help Plans that are consistent with the Emergency Preparedness Plan. These Self-Help Plans provide for personnel accountability, first aid response, locating and rescuing trapped or injured personnel, maintaining the safety and well-being of personnel, and locating and reporting damage to facilities.
Emergency equipment is maintained to perform search, rescue, and first aid, and to shut down utilities during an emergency. Personal protective equipment such as disposable coveralls, various types of gloves, face shields, head gear and shields, shoe covers, and head covers are maintained for personnel responding to incidents such as spills of hazardous materials. Equipment is inspected regularly and replaced when necessary.
LLNL has several systems for communicating emergency information. These systems include evacuation paging in buildings, telephones, two-way radios, radio pagers, an AM broadcast station (1610), siren/klaxons, portable loudspeakers, megaphones, and runners. In addition, these systems are supplemented by the Radio Amateur Civil Emergency System, a network of employees who are amateur radio operators.
J.3.3 Organizations and Interface
J.3.3.1 Emergency Management
Emergency Management Team
The organization responsible for managing response to a major emergency or disaster at LLNL is the Emergency Management Team. The Emergency Management Team includes a senior DOE representative (generally the San Francisco field office Livermore site office representative) and senior LLNL managers and staff from each basic emergency service organization. The structure of this team is shown in Figure J-2.
Activation of the Emergency Management Team and implementation of the elements of the Emergency Preparedness Plan are initiated on recognition of the existence of an emergency condition and classification of the incident. Classification is based on a standardized scheme of escalating severity levels (Alert, Site Area Emergency, General Emergency). Emergency Action Levels (LLNL, 1990a), defined in the Plan, provide guidance in classifying the types of events that may be considered emergencies and thus require activation of the Emergency Management Team. Safeguards and Security emergencies are classified separately as are Radiological Assistance Program emergencies. During such emergencies, DOE may use trained personnel from LLNL to respond to emergencies at other locations.
Incident Commander
The Incident Commander is responsible for the initial classification of incidents, initiating the appropriate response functions, and making required initial notifications (LLNL, 1990a). The Incident Commander is also responsible for safety, rescue, fire control and extinguishment, spill control, containment, protection of classified matter, property conservation, and salvage operations. The Incident Commander retains on-scene operational control throughout the duration of the incident.
Emergency Manager
The Emergency Manager assumes management command and control (LLNL, 1990a) and may reclassify the emergency. The Emergency Manager is responsible for activating the Emergency Management Center and its organization, reviewing recovery operations, and reviewing documentation of the incident and the response. The Emergency Manager also may issue protective action orders for personnel, and may make protective action recommendations to state and local emergency service organizations for offsite protective actions.
Laboratory Emergency Duty Officer
The Laboratory Emergency Duty Officer, who is on call 24 hours a day, serves as the Emergency Manager until one of the designated Emergency Managers assumes that function. At LLNL Site 300, the Resident Manager fulfills a similar role.
J.3.3.2 Emergency Management Center
The Emergency Management Center is the focal point for emergency management and control. The facility provides a location for official liaison with local, state, and federal agencies and with the news media; a central location from which the Emergency Manager maintains continuity of operations and succession of authority; and a location for centralized information-gathering and dissemination by decision-makers while directing coordinated emergency response and protective actions (LLNL, 1990a).
The Emergency Management Center is located in Building 313. The alternative backup location is Building 111. The facility may be partially activated for an Alert classification and shall be fully activated for a Site Area or General Emergency. Full staffing includes representatives of those organizations indicated in solid boxes in Figure J-2, as well as support provided by the Information Display and Recording Team, Communications and Telephone Operators, Radio Amateur Civil Emergency System operators, and representatives of specific service groups and program management.
Communications are typically maintained by telephone between the Emergency Management Center and the Hazards Control Satellite Operations Center, the Field Operations Center, the Atmospheric Release Advisory Capability Center, and local, state, and federal officials. Radio Amateur Civil Emergency System capabilities are employed as a backup.
The release of public information is coordinated through and approved at the Emergency Management Center, with the participation of the senior DOE representative, who has primary responsibility for interfacing with DOE San Francisco Field Office and DOE Headquarters.
J.3.3.3 Functional Response
Organizational divisions (represented by dashed lines in Figure J-2) functionally respond to an emergency by dispatching personnel and equipment. These units are directed by the following seven organizations, which coordinate all activities with the Emergency Management Center and provide guidance to the units from the Hazards Control Satellite Operations Center via communication networks.
J.3.3.3.1 Hazards Control Department
The Hazards Control Department (shown in Figure J-3) consists of five divisions. During a sitewide emergency, the department head is responsible for establishing health and safety emergency control plans, utilizing resources, and developing emergency response teams. All department personnel respond to designated duties. Hazards Control activates its Satellite Operations Center in Building 253 to coordinate resources and relay information to the LLNL Emergency Management Center (LLNL, 1990a). The safety mission of each division within Hazards Control is described below.
Fire Safety Division
Fire personnel are on duty 24 hours a day at both the LLNL Livermore site and LLNL Site 300 (LLNL, 1990a). The Fire Safety Division operates under the "Incident Command System." The first fire officer to arrive at the scene assumes the Incident Commander position until relieved by the Fire Chief or a chief officer. The Fire Chief or a chief officer becomes the Incident Commander upon arrival at the emergency.
During a single emergency, the Incident Commander operates from a mobile command post located at the emergency scene. During multiple emergencies, the Incident Commander and staff operate from the Field Operations Center in Building 323 (the LLNL Fire Station). The Field Operations Center serves as a central clearinghouse for support requests from the Incident Commander, as a staging area for non-Laboratory resources such as mutual aid personnel and equipment, and as a major communications link to the Hazards Control Satellite Operations Center. From the Field Operations Center, command posts are set up at each emergency scene under the direction of an operations officer designated by the Incident Commander. All requests for personnel and equipment come through the field command post(s) to the Incident Commander. Run cards (informational cards) are maintained by the Fire Safety Division to advise fire officers regarding hazard information and special actions required for each facility.
The Field Operations Center is equipped with telephones, radios, chalkboards, a kitchen, sleeping quarters, and showers. The facility is a central assembly area for response personnel if radio communication is disrupted (LLNL, 1990a).
Safety Services Division
The Safety Services Division includes the Radiation Measurement Group and the Industrial Hygiene Services Group and is responsible for providing the Incident Commander with requested radiation measurements and industrial hygiene services through the Hazards Control Satellite Operations Center. The Radiation Measurement Group provides radioactive sample analysis and radiation survey instruments to support personnel in the field. The Industrial Hygiene Services Group provides analysis of toxic materials, industrial hygiene instruments, and personal protective equipment (LLNL, 1990a).
Operational Safety Division
The Operational Safety Division is responsible for providing onsite and offsite safety support. Operational Safety is composed of Teams 1–7, which provide field safety support to LLNL programs and support organizations and may assist Fire Safety's Emergency Operations Group. The Operational Safety Division Leader is assigned to the Hazards Control Satellite Operations Center when it is activated and maintains radio communication with the Safety Team Leaders via a portable radio network.
Except for Team 7 (which is responsible for LLNL sitewide environmental, safety, and health assessment activities) each team is assigned to a specific area (five teams to the LLNL Livermore site, and one to LLNL Site 300). The team also is assigned to a program(s) at LLNL and provides knowledge and expertise during emergencies. One member of a team reports to one of the team's assigned areas, assesses the situation, and relays this information to the Safety Team Leader. The Safety Team Leaders, or a member of the Safety Team (depending on time-frame), in turn, relay this information to the programmatic command post and to the Operational Safety Division Leader at the Hazards Control Satellite Operations Center. When a command post is established at the scene of a specific emergency, the Safety Team Leader or other team member reports directly to the Incident Commander. If there are no problems at a safety team's assigned area, the Operational Safety Division Leader may direct the team leader to reassign personnel to another safety team (LLNL, 1990a).
Health and Safety Division
The Health and Safety Division is composed of the Industrial/Explosives Safety Group, the Health Physics Group, the Industrial Hygiene Group, and the Criticality and Safety Analysis Group. Health and Safety Division is responsible for supporting Fire Safety's Emergency Operations Group and for providing additional support, as directed, through the Hazards Control Satellite Operations Center.
When the Hazards Control Satellite Operations Center is activated, unassigned members of each group report to their assembly areas for briefings and instructions from the Division Leader. Group members, with safety team assignments, report to the Safety Team Leader at the field command post in their assigned geographical areas. Group members provide technical support in their areas of expertise, as follows:
- Industrial/Explosives Safety advises on high-pressure systems, electrical hazards, general physical hazards, and explosives.
- Health Physics deals with exposure to ionizing radiation and radioactive contamination.
- Industrial Hygiene advises on the control of chemical and physical agent exposures and their potential impacts on personnel, and conducts assessments of employee exposures to these agents.
- Criticality and Safety Analysis advises on fissile materials that may present a criticality concern.
Special Projects Division
The Special Projects Division is primarily responsible for research in areas related to fire, health physics, industrial hygiene, and analytical chemistry. Special Projects supports other department personnel during an emergency by providing technical information and specialized measurements in the fields of fire, radiation, and safety science (LLNL, 1990a).
Atmospheric Release Advisory Capability (ARAC)
The Atmospheric Release Advisory Capability (ARAC) group is an integration of professional staff, numerical models, and computer systems that provides emergency response support not only to LLNL but also to other installations worldwide. Its overall mission includes emergency planning, real-time emergency response and assessments, postaccident analysis, and training. During an emergency, ARAC provides real-time assessments of the consequences of an atmospheric release of radioactive material, and advisory services through analysis of hypothetical scenarios, routine assessments, and evaluations involving atmospheric release of toxic materials.
The Hazard Control Satellite Operations Center normally requests the services of ARAC. Information about an accident or potential accident is transmitted to the Atmospheric Release Advisory Capability System Center. The center provides calculations in the form of plots showing dose or air concentration and ground deposition of toxic materials. ARAC support computers are located in Building 253 at the LLNL Livermore site and Building 848 at LLNL Site 300. Communication with the Emergency Management Center is maintained through the Hazards Control Satellite Operations Center.
J.3.3.3.2 Environmental Protection Department
The Environmental Protection Department (shown in Figure J-4)
consists of four divisions. During a sitewide emergency, the department is responsible for providing environmental support to all LLNL programs and departments. With the exception of Environmental Restoration, which does not play a role in emergency response, the mission of each division within Environmental Protection is described below.
Operations and Regulatory Affairs Division
The Environmental Operations Group of the Operations and Regulatory Affairs Division provides environmental support to LLNL programs and departments during emergencies. The first member of the group to respond reports to the Incident Commander. The group assesses the incident and coordinates necessary cleanup and corrective measures; evaluates the incident and establishes whether the incident is reportable to external regulatory and emergency response agencies; coordinates reporting with the Emergency Manager; notifies the regulatory agencies; and prepares and submits the reports required by those agencies. In addition, Environmental Operations will assist the responsible LLNL program in evaluating the incident and in preparing Unusual Occurrence Reports under DOE Order 5000.3A (DOE, 1990a). The group also directs the sampling of environmental media to assess the extent of contamination, determines the level of cleanup needed, and verifies that cleanup is completed.
Hazardous Waste Management Division
The Hazardous Waste Management Division is responsible for providing equipment and personnel to contain and clean up spills in an environmental emergency (LLNL, 1989, 1990b, 1990c), and for maintaining a supply of emergency response equipment in a specially equipped response trailer. The Operations Group within the division has the primary responsibility for providing remedial support in an environmental emergency (Stein and Gancarz, 1985).
Environmental Surveillance Division
The Environmental Surveillance Division includes the Environmental Monitoring Group and two laboratories. The Environmental Monitoring Group determines if air releases have been detected by samplers used in the routine air-monitoring program and by portable air samplers deployed in response to the incident; performs air dispersion modeling to show potential air contaminant migration; responds to incidents involving the detection of contaminants in the sanitary sewer system; and samples water, soil, vegetation, and any other environmental media. This group has the primary responsibility for operating the sanitary sewer monitoring station at Building 196. If this system detects contaminants above acceptable levels, the diversion system, which is described in Appendix B, is activated. The Environmental Monitoring Group verifies that the event is real and, through the use of satellite monitoring stations, locates the vicinity of the spill (LLNL, 1990a); notifies the Livermore Water Reclamation Plant of the incident; and prepares any required reports.
The Environmental Analytical Sciences Laboratory is a California State–certified lab that can be used to analyze samples for certain contaminants to identify materials in a release or determine if cleanup has been completed.
The Radiation Analytical Sciences Laboratory, which is operated by the Nuclear Chemistry Program, can be used to analyze environmental samples for radioactive contamination.
J.3.3.3.3 Credibility Assessment
Credibility Assessment consists of a team of individuals knowledgeable in design and fabrication of improvised nuclear and non-nuclear explosive devices, in psycholinguistic or psychologic threat message analysis, and in adversarial behavioral analysis.
J.3.3.3.4 Health Services Department
The Health Services Department consists of a professional medical staff and Fire Safety Division Emergency Medical Technicians. Health Services is responsible for maintaining a detailed medical emergency response plan for providing medical care during emergencies, using both LLNL and offsite non-Laboratory capabilities. Both ground and air transportation are available to local hospital emergency facilities. Ambulances are radio equipped.
For emergencies involving the LLNL Livermore site, air transport of patients is provided by Alameda County under the Alameda County Medical Alert Plan. Memoranda of Agreement ensure availability of Valley Memorial Hospital in the City of Livermore and Eden Hospital (trauma center) in Castro Valley for treatment of radiologically contaminated personnel. At LLNL Site 300, air transport is provided by Modesto Medi-Flight. Tracy Community Hospital is available for treatment of patients who are not radiologically contaminated. Contaminated injured personnel will be transported to Valley Memorial Hospital (LLNL, 1990a) or Eden Hospital. The decision for air transport is normally made by Health Services Department personnel, but may be made by the Fire Safety Division, if warranted, through the Emergency Management Center. Notification is coordinated by the LLNL dispatcher.
In addition to medical supplies available at Buildings 663 (LLNL Livermore site) and 877 (LLNL Site 300), the Health Services Department maintains a mobile disaster supply trailer containing blankets, cots, limited medical and orthopedic supplies, bandages, respiratory equipment, radios, and documentation supplies. The trailer is supplied with an emergency generator and lights.
J.3.3.3.5 Plant Engineering Department
The Plant Engineering Department (shown in Figure J-2) is responsible for maintaining LLNL facilities and utilities. Personnel are on duty 24 hours a day. Maintenance and Operations Division personnel within this department are routinely called upon to correct malfunctions. In the event of an emergency, Plant Engineering will activate the Satellite Operations Center in Building 511 when the Emergency Management Center is activated, and will support the Incident Commander at the scene of the emergency. Plant Engineering will also activate Self-Help Plans.
J.3.3.3.6 Safeguards and Security Department
The Safeguards and Security Department consists of five divisions, two of which are responsible for responding to and assisting emergency service personnel.
Protective Force Division
The Protective Force Division protects LLNL property and personnel; maintains appropriate control of classified material and information; and controls personnel access, including site evacuations, during an emergency. Safeguards and Security also develops and executes security measures and mutual-aid agreements, provides 24-hour coverage of overall security resource management, provides advice to the Emergency Manager during an emergency, functions as liaison with outside law enforcement, and assesses tactical situations. The Protective Force Division will also provide support as requested if the Federal Bureau of Investigation assumes command and control of the emergency from the LLNL Emergency Manager. Additional information related to the Safeguards and Security Department is presented in section 4.16.2.
Materials Management Division
Materials Management personnel provide specialized advice on emergency activities during a threat to accountable nuclear materials, sealed radioactive sources, or classified weapon parts.
J.3.3.3.7 Public Information Office
The Public Information Office functions as the point of contact for the release of emergency-related information from LLNL. Before it is given out, information is gathered at the Media Center in Building 219. The Public Information Office Manager coordinates with DOE, University of California, and SNL, Livermore Public Affairs offices. The DOE representative in the Emergency Management Center reviews all public information statements and responses to queries regarding the emergency. The DOE representative is also the point of interface with DOE/SAN and DOE/HQ.
The Public Information Office is staffed on a 24-hour basis and is equipped with six walkie-talkies and a radio pager. The onsite Radio Amateur Civil Emergency System may be used as communications backup.
J.3.4 Mutual Assistance Agreements
Mutual aid agreements that cover fire, medical, rescue, and radiation emergencies are in place between LLNL and the following agencies: Alameda County (Medical Response), Alameda County (Fire Service Operational Plan), Valley Memorial Hospital (Radiation Emergency), State of California Office of Emergency Services, UC Davis (Applied Science Department–LLNL Building 661), City of Livermore (Automatic Aid Agreement), City of Tracy, UC and State of California (Master Mutual Aid Agreement), and Twin Valley Mutual Aid. These agreements are also discussed in section 4.16.
In addition, the Safeguards and Security Department has established agreements for nonreciprocal police assistance to LLNL with the following agencies: City of Livermore, California Highway Patrol, Alameda County Sheriff's Department, City of Tracy, and the San Joaquin County Sheriff's Department.
LLNL and SNL, Livermore maintain mutual assistance agreements for a range of emergency response actions including fire, chemical, medical, security and safeguards, radiological, and environmental monitoring and assessment emergency support. Specific responses provided to SNL, Livermore by LLNL are described below.
Upon arrival at the scene of a fire at SNL, Livermore, the LLNL fire Incident Commander assumes lead responsibility for all fire-fighting activities. (If requested, the SNL, Livermore Fire Extinguisher Team will support the LLNL fire Incident Commander and his personnel.) The LLNL fire department is qualified to respond to fires involving radioactive material and hazardous chemicals. LLNL also possesses a 24-hour response capability and has established mutual aid agreements with other local area fire departments as part of the Twin Valley Fire Incident Commanders Association.
On a 24-hour basis, the LLNL Hazards Control Fire Safety Division team, which is equipped with protective clothing and respiratory protection equipment, provides a first response to chemical emergencies, including spills and leaks. Upon arrival at the scene, the LLNL team assumes responsibility for responding to the chemical hazard and coordinates activities with the SNL, Livermore Chemical Hazards Supervisor, Building Emergency Team Leader, and on-scene environmental response team members.
LLNL also can provide trained emergency medical technician personnel and an ambulance for medical emergencies at SNL, Livermore on a 24-hour basis. During normal working hours, an occupational health physician is available for response to medical emergency situations. Ambulance personnel are trained to respond to injuries involving radioactive contamination and can treat injured personnel at the LLNL medical facility or deliver injured personnel to Valley Memorial Hospital. When the injuries involve radioactive contamination, LLNL provides health physics monitoring and support to the hospital. Upon arrival at the scene, the LLNL medical team assumes responsibility for responding to the situation, and the SNL, Livermore first aid team provides support.
If requested, the LLNL Safeguards and Security Department will support the SNL, Livermore Security Department in responding to security-related situations, including security threats, hostage negotiations, and site evacuations. Several on-duty LLNL security officers can respond immediately, and additional support can be provided within one hour. In such instances, the LLNL security officers will function under the direction of the SNL, Livermore Security Supervisor.
Radiological and environmental evaluation support can be provided to SNL, Livermore by the LLNL environmental evaluation team. The LLNL team can assist with determining the extent of offsite consequences resulting from a release of tritium. Under the direction of the SNL, Livermore Radiological Hazards Supervisor, the LLNL team will augment the SNL, Livermore Environmental Response Team. Since neither the SNL, Livermore team nor the LLNL team is equipped with protective clothing capable of allowing extended entry into concentrated tritium plumes, radiological monitoring will be conducted at the plume edge and after the plume has dispersed. The LLNL team's support will be directed toward evaluating the extent of offsite contamination. Later, as available, ingestion pathway sampling and analysis support will be provided to DOE and state agencies.
The SNL, Livermore Radiological Response Team at the Tritium Research Laboratory or health physics professionals responding to radiological incidents at other buildings may request support from the LLNL emergency assistance team. Under the direction of the SNL, Livermore Building Emergency Team Leader, the LLNL team will be used in an advisory capacity in support of building reentry. If onsite contamination problems are widespread, the LLNL team may assist with personnel decontamination activities. If counting equipment is not available or onsite background levels are too high, SNL, Livermore may request assistance in counting samples.
LLNL also can provide radiological assessment support via operation of its Atmospheric Release Advisory Capability system.
J.3.5 Training, Drills, and Exercises
The LLNL Emergency Preparedness Plan requires initial training and annual retraining for key Emergency Management Organization personnel. The training program consists of performance-based modules that are specific to the requirements of emergency response organization positions. The training program may be revised as needed on the basis of changes to the Emergency Preparedness Plan or its procedures and to critiques following drills or exercises.
Drills and exercises are developed and conducted to provide practical training of the response organization and evaluation of its performance under various scenarios. Drills and exercises are conducted in coordination with appropriate federal, state, and local agencies. LLNL conducted its most recent full-scale exercise in December 1990.
J.4 SNL, LIVERMORE EMERGENCY PREPAREDNESS
The SNL, Livermore Emergency Preparedness Plan describes the program for responding to onsite emergencies and near-site emergencies that may affect activities onsite. The plan covers spills or releases of radioactive or hazardous materials, fires, explosions, natural disasters, security events, and declared states of national alert. The plan was developed to meet the intent of DOE Orders (See section J.1 for the specific Orders) and to provide guidance to assure the health and safety of personnel and the general public during emergencies.
The SNL, Livermore plan covers personnel roles and responsibilities, authority, and organizational interfaces; activation and augmentation of the emergency response organization; interfaces and coordination between the SNL, Livermore emergency response organization, LLNL, and offsite officials and agencies; emergency classification; notification and communications; assessment and mitigation of situations; facilities and equipment; medical treatment and first aid; release of information to the public and media; assembly, accountability, and evacuation of nonessential personnel; the Emergency Preparedness Training Program, including drills and exercises; and administration of the Emergency Preparedness Plan, including provisions for its review and update. Emergency Preparedness Plan Implementing Procedures have been developed from the commitments in the plan. These procedures are position-specific and include step-by-step checklists (SNL, Livermore, 1990a, 1990b).
Other plans that establish criteria or provide information pertaining to emergency preparedness and response are the SNL, Livermore Hazardous Waste Management Facility Contingency Plan, the Spill Prevention Control and Countermeasure Plan, the Radio Amateur Civil Emergency System Communications Plan, the Security Emergency Operations Procedures, the Emergency Organization Activation List, the Emergency Phone Directory, and Site Building Floor Plans.
J.4.1 Responsibilities and Authority for Planning
Development and implementation of the emergency response program is the responsibility of the Emergency Preparedness Review Committee, which is chaired by a Director-level individual assigned by the Vice President. Each SNL, Livermore directorate is represented on the committee. The Emergency Preparedness Coordinator serves as committee secretary.
The Emergency Preparedness Review Committee reviews and approves the plan; obtains Vice Presidential approval; periodically reviews the status of the program, including its associated training, drills, and agreement letters; ensures that sufficient resources are allocated for program support; recommends improvements; and ensures adequate implementation.
J.4.2 SNL, Livermore Emergency Response Resources
SNL, Livermore maintains both equipment and organizations sufficient to respond to most emergencies. SNL, Livermore response capabilities are enhanced by resources provided by LLNL, as established in letters of agreement (discussed in section J.2.4). This approach was developed because the only facility at SNL, Livermore with a significant inventory of radioactive material is the Tritium Research Laboratory in Building 968; thus, the majority of radiological emergency response is focused on that facility.
Emergency response equipment for radiological and hazardous material releases is maintained and routinely inventoried to ensure readiness for use. The emergency equipment includes full body protection with supplied air for reentry, supplies for decontamination of emergency response personnel, gloves, shoe covers, flashlights, and other supplies. The equipment is located in cabinets just outside the Tritium Research Laboratory, one cabinet outside the entrance to the laboratory monitoring room and a second cabinet inside the main entrance. A tritium monitor is maintained with the emergency equipment and additional monitors are available from the Tritium Research health physics office.
Two environmental response team kits are maintained for environmental monitoring, including supplies necessary for taking soil, vegetation, and water samples. Radiation monitors are available from the health and safety division. Kits also include protective clothing such as gloves, coveralls, and shoe covers. Several vehicles, available to the onsite team, are controlled by Security and the Center for Environment, Safety and Health and Facilities Management. Emergency equipment is audited on a quarterly basis and after each use, following a drill or an actual release.
J.4.3 Organizations and Interface
J.4.3.1 Emergency Management and Functional Response Areas
The emergency response organization shown in Figure J-5
identifies the organization that will be activated during an emergency. The organization's five main functional areas are discussed below.
J.4.3.1.1 Emergency Response Director
The Emergency Response Director is responsible for overall implementation of the resources needed to respond to, mitigate, and terminate an emergency. The Emergency Response Director has full decision-making authority to implement the necessary emergency response activities. The Emergency Response Director determines priorities and appropriate levels of response; declares the emergency classification based on the emergency action levels; issues protective action orders for onsite personnel; and approves emergency worker exposures above 5 rem. The Emergency Response Director also is responsible for ensuring that necessary personnel are obtained, for committing funds for critical resources, and for approving press releases.
J.4.3.1.2 Plant Engineering
The Plant Engineering Supervisor is responsible for coordinating engineering work response activities at the scene of the event. This supervisor directs the activities of the building emergency teams, assesses the extent of damage, recommends corrective actions to the Emergency Response Director, implements corrective actions, coordinates response activities with offsite organizations, and coordinates recovery planning. The Plant Engineering Supervisor is also responsible for evaluating the possible impact to nearby facilities requiring shutdown of gas and electrical systems or closure; and for obtaining resources needed for emergency response activities, including equipment, supplies, and personnel from resources already onsite, from other DOE facilities, or from vendors.
Plant Engineering maintains a list of essential personnel who will be available at a central point for various levels of emergencies. These individuals possess expertise in areas such as plant engineering and maintenance.
Building Emergency Teams
Every building at SNL, Livermore has an emergency team. Several emergency teams are assigned to each of the larger buildings at SNL, Livermore, including First Aid Teams, Fire Extinguisher Teams, Personnel Accountability Teams, and (for the Tritium Research Laboratory) a Radiological Response Team.
The Building Emergency Team Coordinator, who reports to the Plant Engineering Supervisor, is responsible for coordinating the activities of the Building Emergency Team Leaders (Figure J-6) and the response actions of activated Building Emergency Teams. These activities include completing accountability, checking the buildings, searching for and rescuing missing persons, and evacuating individual buildings or groups of buildings. If a site evacuation is ordered, the Building Emergency Team Coordinator works closely with the Security Supervisor. The Building Emergency Team Coordinator operates primarily from the Emergency Management Center but may proceed to the scene of an emergency if required. The coordinator can obtain help from the Plant Engineering staff for establishing barricades to minimize water damage or to control the spill of hazardous chemicals, for turning off gas and electric supplies, for providing emergency power sources, and for modifying building ventilation system operations.
The Building Emergency Team Leader is the primary person in charge at the scene of the emergency. This responsibility includes coordinating the teams' activities for building evacuation; first aid; initial use of fire extinguishers and other small hand-held, maintenance-type equipment; limited special actions for chemical or radiological hazards; and verification that classified information has been secured. In addition to the assigned teams, the Building Emergency Team Leader may receive assistance at the scene from the Protective Force, the Environmental Response Team, and other building emergency teams. The assigned Building Emergency Team Leader will maintain lead responsibility at the scene for the response effort except when the LLNL Fire Department is called. In those situations, the LLNL Fire Safety Division Incident Commander assumes lead authority, and the Building Emergency Team Leaders, if needed, pass instructions to evacuees and team members.
First Aid Team
The First Aid Team consists of persons qualified in basic first aid and cardiopulmonary resuscitation. In addition, an occupational physician and nurse are onsite during normal work hours. For injuries requiring medical attention beyond the qualifications of the First Aid Team, professional medical assistance is requested. The First Aid Team continues first aid activities until relieved by the medical professionals. If an individual needs to be taken to the medical clinic or an offsite medical facility, the SNL, Livermore First Aid Team supports the LLNL ambulance crew. For injuries involving radioactive contamination, help is obtained from the Radiological Response Team. For multiple injuries or a situation where building occupancy is precluded, a medically outfitted van is available to serve as an emergency medical station.
Fire Extinguisher Team
The Fire Extinguisher Team responds to fire alarms and, if there are no chemical, radioactive, or other hazardous materials involved, uses fire extinguishers when it appears that they would be effective. If radioactive material or hazardous materials are involved, assistance will be provided by the Environmental Response Team and, if necessary, an LLNL Hazards Control team. The Fire Extinguisher Team is also assisted by the SNL, Livermore Fire Marshal, as necessary. The Fire Marshal may serve as advisor to the Building Emergency Team Leader and assists LLNL Livermore site fire personnel who respond to emergencies under mutual assistance agreements with SNL, Livermore.
Accountability Team
The Accountability Team is responsible for verifying that personnel have evacuated the building area and that missing persons are identified. The team sweeps a building area to ensure that evacuation is underway and reports to the Building Emergency Team Leader when the evacuation is complete. If professional offsite responders are not enroute or available, the Accountability Team performs search and rescue activities with other team members, as needed. The Accountability Team also serves as security observers in the cleared assembly areas to ensure that uncleared personnel are escorted while in the cleared assembly areas and during building reentry.
Radiological Response Team
The Radiological Response Team is assigned solely to the SNL, Livermore Tritium Research Laboratory. (Limitations on radioactive material at buildings/areas other than the Tritium Research Laboratory make the possibility of a radiation problem at other facilities remote.) This team evaluates the radiological hazards and takes corrective actions under the direction of the Building Emergency Team Leader. If radiological material has been released, the Radiological Response Team assesses the extent of damage and the potential hazard to personnel. The Team may consult with the Radiological Hazards Supervisor in the Emergency Management Center, or may recommend that he come to the scene to assist with emergency response and/or cleanup activities. Additional support can be requested from LLNL. Health physics professionals respond to radiological incidents at buildings other than the Tritium Research Laboratory. Individuals who may be called upon to assist the health physics staff are building occupants familiar with activities in the building.
J.4.3.1.3 Security
The Security Supervisor coordinates onsite security activities in response to security threats and other emergency conditions. This responsibility includes overall site access control, provisions for expedient entry of emergency vehicles, security communications, implementation of site evacuation, and, if necessary, closure of the site. The Security Supervisor is responsible for ensuring access control to the security building, housing the Emergency Management Center and a Satellite Operations Center, and controlling access to buildings or areas of the site that are evacuated. The Security Supervisor is the primary interface with the Alameda County Sheriff's Department and the City of Livermore Police Department. The Security Supervisor also interfaces with the Federal Bureau of Investigation on matters relating to security and provides support, as requested, if the Federal Bureau of Investigation assumes command and control from the Emergency Response Director. Finally, the Security Supervisor interfaces with DOE and SNL, Albuquerque for issues relating to security.
J.4.3.1.4 Environment, Safety and Health
Radiological Hazards
The Radiological Hazards Supervisor is responsible for calculating doses from actual or potential radiological releases and coordinating offsite Environmental Response Teams. In addition, the supervisor recommends onsite protective actions, tracks and evaluates the radiological exposures of emergency response personnel, and notifies the Emergency Response Director if radiological exposure limits are being approached or exceeded. For decisions regarding reentry of the radiological response team into the Tritium Research Laboratory, the Building Emergency Team Leader tracks and evaluates radiological exposures of Tritium Research Laboratory emergency response personnel. The Radiological Hazards Supervisor also coordinates the activities and deployment of any field teams provided by LLNL.
Chemical Hazards
The Chemical Hazards Supervisor is responsible for assessing any potential chemical hazard that may result from an emergency. This supervisor updates the Emergency Response Director regarding the situation and recommends control and cleanup methods. The Chemical Hazards Supervisor may request the help of an LLNL Hazards Control team, serves as the primary interface with chemical support personnel, keeps the Emergency Response Director informed of EPA and State of California hazardous material reporting requirements, and assists in notifying these agencies.
Environmental Response Team
The Environmental Response Team, under the direction of the Radiological Hazards Supervisor and/or the Chemical Hazards Supervisor, is responsible for responding to emergencies that have the potential for hazardous material releases to the environment. In a radiological release, offsite monitoring for tritium is the primary function of the team. Its activities include evaluating radiological exposure to the public and ingestion pathway monitoring. In a chemical or other nonradiological hazardous material release, team members are responsible for assisting with hazards assessment, protective actions, control, and cleanup.
J.4.3.1.5 Public Information
The Public Information Officer is the official spokesperson for SNL, Livermore during an emergency. The Public Information Officer is responsible for issuing timely and accurate press releases, handling press briefings, and coordinating the release of information with DOE/AL, LLNL, and other offsite agencies as appropriate. The Emergency Response Director and DOE/AL review and approve all press releases prior to their release.
In order to assure timely issue, DOE/AL has preapproved the language to be used for the initial public press release so that only the approval of the Emergency Response Director (to assure the accuracy of the press release) need be obtained. Subsequent press releases with specifics and details of the emergency would be approved by both the Emergency Response Director and DOE/AL. The official SNL, Livermore, source of information must be perceived as reliable and timely by the media to minimize misinformation and the use by the press of other sources of information that may not be as current as the information available directly from SNL, Livermore.
J.4.4 Mutual Assistance Agreements
LLNL and SNL, Livermore maintain mutual assistance agreements for a range of emergency response actions including fire, chemical, medical, security and safeguards, radiological and environmental monitoring, and assessment. For more detail on the mutual assistance agreements between LLNL and SNL, Livermore see section J.3.4.
The SNL, Livermore Emergency Preparedness Plan also provides for assistance agreements with the City of Livermore Police Department, the Alameda County Sheriff's Department, the California Highway Patrol, and Valley Memorial Hospital.
J.4.5 Training, Drills, and Exercises
The SNL, Livermore Emergency Preparedness Plan requires initial training and annual retraining for emergency responders. The training program consists of performance-based modules that are specific to the requirements of emergency response organization positions. The training program may be revised as needed on the basis of changes to the Emergency Preparedness Plan or implementing procedures and to critiques following drills or exercises.
Drills and exercises are developed and conducted to provide practical training of the response organization and evaluation of its performance under various scenarios. Drills and exercises are conducted in coordination with state and local agencies. SNL, Livermore conducted its most recent full-scale exercise in February 1991.
J.5 TRANSPORTATION-RELATED EMERGENCY RESPONSE
Both LLNL and SNL, Livermore have emergency response plans and procedures for onsite transportation-related incidents involving hazardous and radioactive materials and wastes. Supplements to LLNL's Health and Safety Manual (LLNL, 1988) also address specific transportation concerns such as shipping of explosives and radioactive substances. In its Transportation Safety Manual (SNL, Livermore, 1991), SNL, Livermore includes additional guidance and procedures for responding to onsite transportation-related spills or releases.
These procedures detail specific activities for first response and evaluation of a hazardous spill, actual cleanup, records keeping, and subsequent follow-up to eliminate, if possible, repeat incidents. They also identify administrative roles and responsibilities, lines of authority for coordinating emergency response, and requirements for clean up after a transportation-related accident.
Packaging and Other Requirements
Compliance with U.S. Department of Transportation (DOT) and/or DOE requirements for packaging hazardous and radioactive materials reduces, if not eliminates, the impacts of any release of any hazardous or radioactive materials resulting from an accident. Packaging requirements for hazardous and radioactive shipments are detailed in DOT (49 C.F.R. 109–199) and Nuclear Regulatory Commission (10 C.F.R. 71) regulations. These requirements apply to shipments of hazardous and radioactive materials and wastes from LLNL and SNL, Livermore.
In addition, hazardous and radioactive material packages are labelled and the transport vehicle is placarded. Shipping papers and documentation requirements also provide necessary information for emergency response. These requirements are specifically identified in DOT regulations (49 C.F.R. 172.600).
J.6 TECHNICAL INFORMATION ASSISTANCE
In addition to the capabilities of LLNL and SNL, Livermore, further confirmation and advice are available from the National Response Center in Washington, DC, for emergencies involving spills of hazardous substances. CHEMTREC, a national information resource on hazardous substances, also provides such information and advice. Both the National Response Center and CHEMTREC are accessible 24 hours a day via a toll-free 800 telephone number.
Emergency response information involving radioactive materials and wastes is available from the Joint Nuclear Accident Coordinating Center. In conjunction with the Defense Nuclear Agency, DOE operates the Joint Nuclear Accident Coordinating Center to exchange and maintain information related to radiological assistance capabilities within the federal agencies and the military (DOE, 1990a). The Joint Nuclear Accident Coordinating Center also provides a focal point for requesting military assistance in connection with radiological accidents.
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