Tài liệu homeland security dhs efforts to enhance first responders docx

DIIS Has A Hazars Policy Intatves and National Strategies ‘Under Development and Faces Challenges in Enhancing Firs Responders’ Emergency Management Capabilities 0 Most Preparedness Capa

GAO Report to the Chairman and Ranking Democratic

Member, Subcommittee on Economic

Development, Public Buildings and Emergency

Management, Committee on Transportation and Infrastructure, House of Representatives

SECURITY

DHS’ Efforts to Enhance First Responders’ All-

Hazards Capabilities Continue to Evolve

GA0-05-652

ES

HOMELAND SECURITY

DHS' Efforts to Enhance First Responders' All-Hazards Capabilities Continue to Evolve

Why GAO Did This Study What GAO Found

‘The events of September 1,2001, hve resulted ina geste focusch DHS has undertaken three major policy natives aimed at creating a national, all Azards coordinated and comprehensive response to large-scale the roe af fist responders in ‘aryngou the ations emergency ‘atonal preparedness goal (how well it shouldbe done) GAD reviewed Incidents (1) a national response pan (what needs to be done) (21a command and management process (how i needs to be done) and (@) a (

these products and detenined that each support a national, all-hazardss Spproach, DHS has developed plans to implement tree related programe £0 fnhance fist responder eapablies- (1) o assess and report onthe status of

‘is responders capabilities, 2) to prioritize national resource investments, snd (to establish national raining and exereise program Implementing

‘hese programs wil kel pose a nunber of chalenges for DUS including Integrating intemal and extemal assessment approaches, assessing State tnd local ris ina national context to effectively prioriae investments, snd (tabliching common training requirements across responder disciplines cause terrorist attacks share some common characteristics with natu and acedental disasters, 20 of DHS 35 eapabitis fst responders need

‘Sport preparednes and response efforts {hat the baseline capabilities required for teronsatacks and natural or ae simlar GAO's als found accidental disasters are more snl for response and recovery and đc,

‘ost for prevention, Because terrorist attacks are planned, intentional acs, all of DHS prevention capabilities focus on terrorist attacks, wile almost ll other baseline capabilities focus onal hazards

‘Legislation and presidential directives cll for DHS to place special emphasis

‘on preparedness for terorsm and DH has directed tha the majority of ist

‘esponder grant funding be use to enhance frst responder capabilities 0 prevent, protect against, respond fo, and recover fom terrorist attacks, ‘Nonetheles grans funds can have allhazards applications, |

DIIS Has A Hazars Policy Intatves and National Strategies

‘Under Development and Faces Challenges in Enhancing Firs Responders’ Emergency Management Capabilities 0 Most Preparedness Capabilities Apply to All Emergency Events,

but Prevention of Terrorist Attacks Requires Unique Capabilities, 28 Federal Funding For Enhancing Pist Responders’ Preparedness

‘Capabilites Emphasizes Terrorism but Can Be Applied To All

‘Table L: DHS Suite of National Panning Scenarios 6

‘Table 2 Natural and Accidental Disasters and Terrorist Attacks

Table : Arrangement of DHS's 36 Target Capabilities by Homeland

Security Mission Area and the Relative Emphasis on

Figure 2 Homeland Security Polcy Iidaive Tìuelne

‘igure &: Three Stages of DHS Capablites Based Planning Process

Model for Development ofthe National Preparedness Goal

igure 4 Seerarios, Tasks, and Capabilities forthe National

Preparedness Goal Figure 5: Example of Taxget Capability Development: Pandemic

Influenza Scenario and Resulting Universal Tasks, Critical

‘Tasks, and Target Capability

‘igure 6 Most Fscal Year 2005 DHS Fist Responder Grant

Funding ls for Three Programs that Focus On Terrorism 7

‘gue 7: DHS Grane Funding for Terrorism versus All Hazard,

Fiscal Years 2001 102005 and Projected for seal Year

“Abbreviations 'CBRNE Chemical, iologẽcdi, raliologiealnuclear, cxpladhe bis Department of Homeland Security

HSPD, Homeland Security Presidential Directive NIWS ‘National Incident Management System NRP ‘National Response Plan

WND ‘Weapons of Mass Destruction

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‘ermasion rom GAO, However soca hs wort may cont cope mss

‘Since the atacks of September 11,200, there has ben concem among, senior federal official that another terrorist attack on US sll could

‘eur According to testimony by the Director ofthe Cental Intelligence

“Agency, itmay be only a matter of time before a terrorist group ties to use ‘chemical, iological, radiological, or nuclear weapons in the United States

‘Concerns lke these have prompted increased federal attention on national

‘emergency preparedness—that i, the nation’s ability to prevent, protect

‘aginst, respond (a, and recaver from large-scale emergency events

‘Through legislation and Presidential directives the Department of|

oreland Security (DHS) has become the primary federal entity responsible for ensuring that fist responders, such as police, fre,

‘emergency medical, and public health personnel, have the capabilities

‘needed to provide a coordinated, comprehensive response to any large- scale ers and to mount a swift and effective recovery effor In the ast 4

‘years, DHS agencies have awarded $11.3 billion to state and Lol [Foveraments to enhance thelr national emergency preparedness

‘capabilites, primarily for terrorist attacks

Long before the events of September 11,200, terorism preparedness was

‘included in the Federal Emergency Management Agency's planning, approach to prepare fr al types of emergency events, commonly referred

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ltention and federal spending fr national preparedness has largely

‘emphasized preparedness for terrorist atacks However, the nation's recent experience with large scale naniral disasters, for example, wiles {in California in 2003, hurricanes in Florida in 2004, and Qoods in New Jersey, Pennsylvania, and New Yorkin 2006 provides a justfeaton for

‘alg an all hazards approach tonatonal preparedness that considers the Fisks of natural and accidental disasters, at well as terrorism

Consistent with this approach, two Homeland Security Presidential Directives (USPD) issued in 2008 require DIS to take an althazards focus

In implementing the directives, HSPD, issued in February 2003, required DHS to establish a single, comprehensive approach to ard plans for the management of emergency events whether the result of terrorist ateacks ot large-scale natural or accidental disasters Appendix [contains the text of SPD 5 SPD, sued in Decernber 200, established policies to

strengthen the preparedness ofthe United States to prevent and respond

to threatened of actual domestic terrorist altaks and lange scale nats

Ot aveidental disasters Among other tng, itreqted DHS vo coordine the development ofa national domestic al-hazards preparedness goal thế:

‘would establish measurable readiness prinities and targets that appropriately balance the potential treat and magnitude of terrorist Attacks and large-scale natural or acidenta disasters with the resources equired to preven, respond 0, and recover fom them The cirecive also Aesignated the Secretary of Homeland Security asthe principal federal

‘fill for coordinating the iaplementation of al hzards preparedness in the United States Appendix Il contains the text of HSPDS,

‘Because ofthe nation's increased focus on preparedness fr terrorist, attacks asa result of the events of September 13,2001, you requested tat

‘we examine the extent to which DHS has considered ill ypes of emergency evens, ncluding both terorst attacks and natural or accidental isasers, in developing and implementing its approach to fenhance and sustain frst responder capabilities This report explores te following questions:

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"What actions has DHS taken to provide polices and strategies that|

‘promote the development of al hazards emergency management ‘capablties of fist responders?

2 How do frst responders’ emergency management espabilties for terrorist attacks difer from capabiities needed for natural or accidental disasters?

3 What emphasis has DHS placed on funding awarded to state and local Sst responders to enhance all-hazards emergeney management capabilites?

‘The scope of our work was focused on the extent to which the actions taken by DHS to enhance frst responder skills and abies encompassed allhazards, whether the result of nature, accident, or terrorist action To adress these objectives, we analyzed DHS’ efforts to implement ISPD-5

‘and HSPDS, including the proces used to develop national preparedness polices andthe plans, goals, and standards resulting fom the process, a5 ‘well as grant programs to enhance the preparedness of first responders

We interviewed DHS officials from the Emergency Preparedness ad Response Directorate, Peeral Emergency Management Agency, the Office for Domestic Preparedness, and the Ofce of State and Local Government Coordination and Preparedness to obtain thelr views regarding the

process and its products along with information on DHS assistance programs To obain the views of first responders, we interviewed officials from professional organizations that represen Mrs responders on a rational level and reviewed relevant reports and studies on homeland, secunty and domestic preparedness Fnaly, we conducted structured Interviews with 0 first responder departments’ and slate level emergency management officials in en states, selected by non- probability sampling (0 fnclude metropolitan area that crossed state boundaries, ial

governments, states that face a varlety of hazarts, sparsely and densely Dopulated states, and states with townships and city goverment

strictures, among other enteria, These fist responder departments responded tothe questions in our structure interview guide and provided

‘ditional observations during the course of our interviews The results of

“int repens adefned ISPD erste hoe int who te acy ‘tags gen even ar reaper orn proton ad presen [rover eden an tbe enevenmont acd eergeney repo renee Fre Peron tha eport xe pienly met mh fis repent eee Steel semis ic mr pe ral departs

Results in Brief

These interviews cannot be generalized to rst responders not participating in te interviews An expanded diseussion of our scope and methodology is presented in appendix IL We conducted our work froma, May 2004 through May 2005 in accordance with generally accepted sovernment auditing standards

‘DAS as undertaken three major policy initiatives to promote the further development ofthe emergency preparedness capabilites of fist

respondersdevelopment of (1) a national response plan (what needs to be done to manage a major emergency event); (2) command and

‘management process tobe used during any emergency event nation-wide (ow to da what needs to be done); and (3) a national preparedness goal (Gove well it shouldbe done), Bach intative reflects an al-hazards approach since each adresses emergency events that are the res of, terrons attacks and lageseale natural and accidental disasters To develop national preparedness goal, DIIS is using an approach known as

‘apabiliies-based planning tht, according to DHS, provides capabilities Ssultable fr a wide range of threats and hazards, n an ervironment of

“Uncertainty and within an economie fameveork that necessitates prioritization for allocation of finite resources DHS began this process {sing 15 emergency scenarios developed by the President’ Homeland Security Courel, 12 of which ae terrorist events The scenarios were not ranked according to ratve risk because, according to DHS, thee purpose

‘as to farm the basis for identifying the capabilities needed to respond 0

a wide-range of major emergency events These 15 scenarios, hich {chu an attack by improvised exploaive device and a pandemic fh

‘outbreak astro examples, were developed to identify a rare of as,

‘rtical tas, and target capabilites, all of which would need tobe performed a various levels of government to prevent, protect agaist, respond to, and recover froin lange-scale emergency events DHS's planning process resulted in Target Capabilities List that identified ‘86 capabilites that together encompass al critical tasks—what frst responders must be ale to do, in terns of planing, trdning, eqprert, land exercises to achieve desired outcomes for ll hazards, For exe, Tor the seenario based on @pandemie ft outbreak, entical tasks inch the abuity to coordinate public health and medical services, provide Jmunizations an direct and eontrol public information releases In March and Apri 2005, DHS published an interim national preparedness

‘oal and guidance that first responders can use to develop, implemev set

‘maintain these target capabilities Because no single urstition oe acy would be expected to perform every task, possession

ofa target capay

‘could involve enfieing and maintaining ied resources, ening acest

*OFeglonalanđ feđerl resources, or some combination of he wo In October 2008, DHS plans to issue a final version of the goal that would Include assigning jurisdictions to ters based an their population density, citeal infrastructure, nd other risk factors and also include performance

‘metres for those in each ter To achieve the goal, DHS prepared Implementation requirements for national programs to assess and report the status of fist responders’ capabilites, to priortize resource allocation, and to integrate training and exercise programs DHS's goal i to achieve {ll implementation of these programs by October 1, 2008 Implementation

‘of each ofthe three systems may pose challenges for DHS-—for example, a key challenge wil be establishing a standartized approach for measuring

‘and reporting the risks faced by diverse states and lealites inorder to

‘effectively prioritize and allocate federal resources

‘Our analysis ofthe target capabilities established by DHS showed that

‘most of DHS's targeted capabilities 30 of 36—are common to bol terrorist attacks and natural or accidental disasters Capabilities common

to ali hazards for example, are onsite emergency management, and search and rescue, DI officials reviewed our analysis and agreed with

‘our assessment of the relative applicability ofthe 96 target capabilities to all hazard: During our interviews with frst responders and other emergency management officials and experts, the firmed the idea that preparedness or netural and accidental disasersssiar to

preparedness for terorst tacks, DHS categorizes the capabilites in tems of mission areas: prevention, protection, response and recovery (ur analysis further revealed that the preparedness capabilites required for terrors attacks and natural or accidental disasters are more sar for protection, response, and recovery, and difer most for prevention

‘Terorit stacks differ from natural or accidental disasters principally because it is possible that terrorist attacks could be prevented through actionable intelligence (Le, information that car lead to stopping oF apprehending terrorists), but there is no known way to prevent natural

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‘disasters, such as hurricanes, earthquakes, and tomadoes Therefore,

‘prevention requires specific capablites related to inteligence and

counterterrorism that are not normally used for other hazards, such aus the

‘erorism investigation and apprehension capability

‘Since September 11, 2001, funding appropriated by Congress for DHS programs to enhance fist responders capabilities has largely

‘enhancing capabilities to respond to terrorist attacks The Homeland

Security At of 2002 and HSPD directs DHS to take an al-hazaris|

approach to national emergency preparedness with a special emphasis on ‘terrorism As.a result, DIS grant guidance forthe State Homeland Security Grant and the Urban Area Security Initiative grant programs, the two

largest sources of DHS grants funds available to states and local frst

responders have largely focused on enhancing first responders

preparedness fr terrorist attacks State preparedness officals and local fist responders we interviewed sid that DS's emphasis for grant

funding was too heavily focused on terorism and they sought to acquire dual use equipment and taining that might be used for emergency event that occur more regularly in thelr jurisdictions in addition to supporting terrorism preparedness n response, DHS promoted flexibility to alow such dual usage within the grant program requirements for fiscal year

2005, according to DHS ofl although oficial stated that, prior to fiscal year 2005, grant requirements allowed for dual usage and state

grantees are responsible for contacting DHS when questions regarding {pplication of grant guidelines arse To ensure grant funds are Used for thelr designated purpose, the states and locales we visited reported they have financial controls and monitoring procedures in place designed t0| ensure that whatever flexibilities for dl ses exis, they remain within DIS’ program guidelines In February 2005, we reported that in fiscal year 2004, DUS completed site visits to #4 of 66 states and territories that eceved grants as part of DHS's monitoring of states" grant reporting ad State homeland security strategy implementation We also reported thatin {sal year 2004 DHS revised is method of reporting on grat

expenditures, moving away fom requiring itemized ists of expenditures, toward a more results based approach where gant managers ust

demonstrate how grant expenditures lnk to larger projets that suppor

‘one or more goals inthe states’ homeland security strategies’ Finally,

te absence of some basic, comparable standards for first responder

performance, i has been dificult to assess the effect of grant expendies

‘on is responder capabilities and performance,

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Background

First Responders are

‘rior to September 11, 2001, the federal governments role in supporting

‘emergency preparedness and management was limited primarily to providing resources before large-scale disasters like Hoods, hurricanes, land earthquakes, and response and recovery assistance after such disasters Historically, FEMA daveloped migation programs designed to minimize risk to property or individuals from natural or manmade hazards

‘These mitigation programs included the post-dsaster Hazard Mitigation Grant Program and the predisaster Project Impact program In aon, the Robert T Stafford Disaster Relief ad Emergency Assistance Ac, a8 amended, esiablished the process fr states to request a presidential slisaster declaration in order to respond and recover from large-scale

‘emergency event However, in esponse tothe evens of Septernber 11,

2001, the federal goverament has provided billions of dollars to state and local goveranents for planning, equipment, and training to enhance the

‘cepablities of first responders to respond to terrorist atacks and, toa Tesser exter, natural and accidental disasters These extensive resources

‘reflect a growing federal role in promoting emergency preparedness

“The nation’s first responders have the lead responsibilities for carrying out Responsible for Carrying

out Emergency

‘Management Efforts

‘emergency management efforis* The role of fire esponsers i to prevent, protect against, respond (o, and assist inthe recovery from emergency events Traditionally, fist responders have been trained and equipped in

‘the event of an emergency—natural or accidental disasters and terrorist, aizks—to ariveon the scene and take action immediately Inthe first hours of an even, first responders from various disciplines, which could Include police, ire, emergency medical personnel and public works, must attempt to enter the seene set up a command center, establish a safe and

‘Fim responder haven mete sone wo es to ches sla hes oo trước a cents nd ben tought of al re, pode, anderen her pet ont tart, tre dfaton fra responder as ben ended Seton the tnd Ser At ele emery oq proc aig

"Federal Shi, and incl emegeney pete, wenden ergy rps ‘nergy tealight emerge faces) an read poner

‘pw ad mort Hota Sear Ae of eB 85140 (coded we USC s01(0) HSPDS defied te era ie reponse Po U7 A,

‘na ont uty aga ev apa (USE fen) sẽ se coengeey manaaenen jchi beater, ue

te mảnh he app personae chan eure operon) at pore {Ione support senses ane veto sponse ar ee pee”

Since September 11,2001, the roles and responsibilities for frst responders to prevent emergency events and protect the public and property have expanded, In July 2002, prior othe cretion of DHS, the President developed a National Strategy for Homeland Security which recommended steps that federal, state and local governments, private

‘companies and organizations and individual Americas should take to lmprove homeland security The National Strategy identified the need to Lmprove tactical counterterrorist capabilities ofthe various federal, state, and local response assets that can intercede and prevent terrorists from

‘carrying out attacks These assets include state and local law enforcement and emergency response personnel which the National Strategy considers racial to preemption of terrorists, no matter they are part ofthe local

‘SWAT team or the FBMs Hostage Rescue Team

Figure Fre Responcers Acton

First responder organizations across the county are to various degrees,

‘rained, staffed, and equipped to prepare for and respond to various

‘evens These oganizatons may difer in governmental roe, size,

‘structure, and capabilities, For example activites of local law

‘enforcement departments in smaller communities may be limited to

‘with basic firefighting capabilities or in larger eommunities, may include teams specializing in hazardous materials response, search and rescue, or structural collapse The local public healh system can consist of public oF private emergency medical services that provide immediate vitim care and transport vets tothe area's public or private hospitals to receive patient care, along with the state and local medical staff that monitor and detect disease outbreaks Supporting the response and recovery efforts of first responders are other state and local oficials who provide

preparedness planning, administration, and the communications systems

‘heeded to command and control aeuies on the scene, Natural and accidental dlsastes have provided all levels of government in _mary locations with experience in preparing for ifferent types of

‘emergency events However, terrorist stacks potentially impose a relatively new level of fiscal, economic, and social disruption within this nation's boundaries Today's threat environment includes not oly the

‘aditional spectrum of large scale manmade and natural hazards —

‘wildemess and urban fies, loods, ol spills, hazardous materials releases, ‘ansportation accidents, earthquakes, hurricanes, tornadoes, pandemics, and accidental or natura disruptions tothe nation's energy and

Information technology infrastructure—but also the deadly and

‘devastating arsenal of chemical, biological, radiological, nuclear, and high- yield explosive weapons as exemplified by the atacks on New York City

‘and Oklahoma City These attacks have resulted in greater public and {governmental focus on the role of first responders and ther capabilities to respond to largescale emergency events

“Two DHS organizational uits have the primary responsiliies for leading national emergency preparedness efforts—the Emergency Preparedness and Response Directorate and the Office of State and Local Government Coordination and Preparedness The Homeland Socunty Act assigned responsibility to the Emergency Preparedness and Response Directorate,

‘hich includes the Federal Emergency Management Agency, for building a comprehensive national incident managesnent system that defines the roles ov responsibilities of federal, state, and local governments, and the

‘various fist responder disciplines at each level during an emergency event The Act also charged the directorate with consolidsting existing federal govemment emergency response plans into a singe, coordinated national response plan, as called for by HSPD'S, DHS assigned

‘esponsibility for developing a national preparedness gol tots OFBCe of

‘State and Local Goverment Coordination and Preparedness, which includes the Ofice for Domestic Preparedness The Ofice of State and {Local Goverament Coordination and Prepareines also awards and, administers the majority of DS's frst responder preparedness federal

‘rant programs in large part these gran are directed tothe governor of

‘each state, wo in tum makes these funds avallable to local jurisdictions svithin the state,

"To comply with SPD and HSPD 8, DHS has established a national plan for emergency event response, anational management system to be used during emergency events, ad an interis national preparedness goal DHS also plans to develop national strategies fr assessing and reporting the status of frst responders capabilities, prioritizing feral, sate, and local resource investments to enhance these capabilites, and standardizing training and exercise programs for frst responders to practice and Improve emergency response capabilites Te presidential diectives on

‘which thse efforts are based correspond tothe major initiatives frst developed in the Nationa Strategy for Homeland Security Our analysis of the documents resulting fom, and plans fr, these efforts showed that DHS has taken an all hazants approach to promote first responders’

emergency maziagement capabilities Figure 2 usrates the tielin of DHS’ efforts to develop these natioral tatives and identifies the anticipated results

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DHS Has Developed AII-

Hazards Policies to Guide

Response to Emergency

Events

"To comply withthe initiatives of the National Swategy and the timeframes and requirements established in HSPD-, DHS implemented an integrated alLhazards approach 1 emergency event management by establishing the

‘National Incident Sansigement System (NIMS) and the National Response Plan (NRP), NIMS i a poicy document that defines roles and

‘esponsbilities of federal, tate and local fist responders during

‘emergency events The intent ofthis system describe inthe document is {oestablish a core set of concepts, principles, terminology and

‘organizational procestesto enable effective, ecient, and collaborative

‘emengency event management aa levels These concepts, principles, and processes are designed to improve the abilty of diferent Jursditions and frst-responder disciplines (eg, fire and police) to work together in various areas—connane, resource management training and

‘communications The NRPis designed to integrate federal government

‘domestic prevention, protectin, response, and recovery plans ito a

“Single operational plan forall hazards and all emergency response

‘iseiplines Using the frarework provided by NIMS, the NRP describes, operational procedures fo federal suppor to state, local, and tba temergeney managers and defines sltuations where the federal authorities are to provide support and situations where the federal authorities are to assume control The NRP organizes capabilities and staffing and

fequipment resources in terms of functions that are most Hkely to be needed during emergency events, describes common processes and specific administrative requirements (public ranagesnent, public healt, ete), and outines core procedures, The NRP- afr, Snail also augnents NIMS by defining roles and responsibilities for specitic

"ypes of emergencies

“To develop NIMS and NRP, DHS asvembled a variety of stakeholders from federal tate, and local levels such as national professional associations, and state and local responders representing the full ange of response disciplines During the development of NIMS, stakeholder groups reacted

to nial dralts developed by DHS The final draft of NIMS incorporated, in part, key elements ofa widely-used, interdscplinary system of|

ommand—frst used in conjunction with widfizes in California during the 19605-—into a standardized, natlonal system that would apply across al emergency response disciplines and levels of government Smulary, the [NEP was based on a consensus among stakeholders of best practices to apply in integrating prevention, protection, response, and recovery pans Ino one all iscpline,al-hazards plan

HSPD-5 requires al federal departments and agencies to adopt and use [NIMS in their individual preparedness efforts, as well asin support ofall actions taken to asist state and local governments Furher, the directive requires feral departments and agencies to make adoption of NIMS by States a condition, to the extent permitted by law, of federal preparedness assistance beginning in fiscal year 2005, For Nscal year 2005 DHS rotiret

‘Sates and other junsdletions that receive direct funding to incorporate [NIMS into existing training programus and exercises, emergency operations plans, and intrastate mutual aid agreements; to institutionalize the use of the fncident Command System; and will require states and other

uration to ceriy as part of thee fscal year 2006 grant applications thất they have met the fiscal year 2005 NIMS requirements However, fal requirements for fiscal year 2006 self cerifleation have not been

ormulated, according to DES officials DHS encouraged, but did not require, local governments to implement these activities to the maxima extent possible

\

‘We assessed NIMS and NRP to determine the exten o which the palicy documents discuss and emphasize different types of emergency events

‘Our analysis showed that both documents had been developed in a

‘manner that reflects an all-hazands approach For example, both NIMS and 'NRP use the generic term "incident management” rather than specif¥ing

‘the cause(s) of events, such as a terrorist ac, accident, or natural disaster Moreover, NIMS and NRP are designed to promote interdiscipinary efforts

‘that consider the involvement of multiple jurisdictions and multiple responders The common processes an specific administrative requirements listed in NRP also are deseribed in tems tha are not speiflc toany type of threat or emergency For example, according to NRP, the plan isto be implemented during “indents of national signiieance.™ First responders we visited firmed that NIMS andthe NRP do take an ll hazards approaeh—that is, they apply to natural and accidental disasters,

as wells errorst attacks, For example, 12 frst responder officials we Interviewed tod us that they have long used the incident command system

‘upon which NIMS was based fora variety of emergency events Similarly,

‘one homeland security director ina large urban city sald NIMS had only yhad a moderate impact on their operations because the city has already ben using an incident command system in its all hazards approach

£2 The maource of stl sl oa ornare verted an fea

‘enrol {Nore than one ea department or gency hs Pct sib vad in

———

4 DHS hs ben dete he rset to amu esponsiy for manag &

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DHS1s Developing an All-

Hazards National

Preparedness Goal and

Related Products Using

Capabilities-Based

Planning

"To comply withthe requirements established in HSPDS, DBSis|

developing a National Preparedness Goal Wile NIMS defines “how” to manage a large-scale emergency event and NRP defines “what” needs to be

‘done, the National Preparedness Goal is intended to generally define “horw

‘well itneeds tobe done DHS Issued an interim version ofthe goal in

March 2005 The inerim version will main in effect und superseded! by the Final National Preparedness Goal, which DHS intends to issue in October 2005” According to officials from DHS's Office of Sate and Local Government Coordination and Preparedness, the final version is expected

to remain largely the same asthe interim; however, the ofie s working with is state and local goverment stakeholders to define appropriate Jursdietional Hers, and plans to ald this information tothe inal version of the goal According tothe interim National Preparedness Goal, the primary purpose of establishing ties is to account for reasonable Aiferences in target levels of capability (or syster-specific cements of capability) among groups of jrisictions based on differences in risk factors such as total population, population density, and etcal infrastructure Our review of the interim goal indiestes tha it reflects an alrhazards focus by consistently citing bots natural and accidental disasters and terrorist attacks as emergenctes andthe extent to which the nation’s ft responders must develop their eapablites to adress all, hazards

‘To develop the goal and determine the tasks ad capabiities needed by first responders ona nation-wide bass, DHS is using an approach known 2s capabilites based planning, The purpose of this approach i to provide capabilites suitable fora wide range of threats and hazards In an

environment of uncertainty and within an economic framework that

‘ecessitates priontization for allocation of frte resources, accorting to DHS As figure shows, DII's application ofthe capabilities based planning process model tothe development ofthe goal and related

‘roducts involves tree stages: (1) defining target levels of capabiiy, (@) achieving target levels of capability; and (3) assessing preparedess

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DHS began the fst stage ofthe capablities-based planning process

‘dentfying concerns using 15 National Planning Scenarios that were

‘developed by the Homeland Securty Council, as illustrated in table 1”

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“The 1S soenarios include 12 terrorist attacks (incorporating chemical, bloga, radiological, nuclear, explosive, and eyber attacks) and

‘Snatural disasters—an earthquake, ahurccane avd a pandemic Influenza,

‘outbreak According to DBS, the Homeland Securty Council exclucied Scenarios for which they considered well-developed and tested response Capabilities to be already available and scenarios where the set of

response capabilities would be a subset of one of he IS scenarios chosen Examples of exchied scenarios ae industrial and transportation

‘cident and frequently occuring natural disasters, such as hoods, the nation’s most frequent natural disaster According to DHS officals, there

‘was lees concem about planning fr natural disasters because there is

‘tremendous amount of experience, actuanal data, geographical and

‘seasonal pattems, and other information that is wot available in the

‘Context of teroriam, Officials told us thatthe department chose to focus the identification of ts concer on event consequences rather than event probabilities, given the high degree of uncertainty related to preparing for

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Acconding to Dil National Preparedness Guidance, the planing

‘conarion az intended to strate the scope and magnitude of les, catastrophic emergency evens fr which the nation needs to be repre Some state and local officials and experts in te ed of emengery preparedness said thatthe scenarios dd not appear to reflect an Esseasment of risk or atelatve ranking elated to risk Asa res hy

‘questioned whelber the scenarios were appropriate inputs for Dreparedness planning, particularly n terms of thelr plausibility he

‘number of scenarios (12 of 15) thal are based on of afaeke?"

Omics in DHS Office of State and Local Government Coordination and Preparedness sald thatthe scenarios Were not ranked according tors,

‘noting tha this was unnecessary given the purposes for which the

sseearios were develope They stated thatthe 15 planning seenarios are

‘not meant to be proseiptive, predictive, or exhaustive nor Were they

Intended to be ranked according to isk According to DHS's National

Preparedness Guidance, the objective of developing the scenarios was to provide minimum numberof credible scenarios that covered the range of| Feaponse requirements DS's executive summaries of the planning Scenarios stat thatthe scenarios were not ranked according to isk and probability beeause they were develope o test the fll ange of response apabiliies and resourees for federal, tate, and local governments as well

‘as the private sector, each of which could have different risks and

rankings

{Ast moved to the step in the process to develop a sense of preparedness

‘needs and potential capabilities, DHS created ait of tasks that would be Fequred to manage each of the 15 National Planning Scenarios Then, in

‘consultation with federal, state, and local emergency response

Stakeholder, it consolidated the listo eliminate redundancies and create Universal Task List of over 1600 disrete tasks This lst was further

‘refined to identify etical tasks that would need tobe performed at

‘varius levels of government to prevent, protect against, respond to, and recover from large-scale emergency events Next, DHS identified target

‘capabilities that encompassed these critical tasks Te relationship

between the scenarios, asks, and capabilities is shown in figure 4

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According to DHS, the Universal Task Lists intended to include all

‘unique, potential tasks at all levels of government that are needed to even, protect agnnst, respond to, and recover from al large-scale

‘emergency events although every task would not necessarly be applicable to each ofthe 15 planning scenarios and no single Jurisdiction

‘oF agency would be expected to perform every task From this universe of potential tasks, DHS worked with stakeholders to identify a subset of bout 30 critical tasks that must be performed during a large-scale event

to reduce loss of life o serious injures, mitigate significant property

‘damage, or are essential to the success ofa homeland security mission

‘The inal stop ofthe first stage of DHS's planning process is to decide

‘ols, requirements, and metrics, To complete this step, DHS, working With ts stakeholders, developed a Target Capabiltes List that identifies

“36 capabilities needed to perform the ential tasks fr the events iustrated by the 15 scenarios An example ofa desired outcome forte target capability of mass prophylaxis prevention of or protective

‘treatment for disease—is to effectively reach an entire affected populaien

in time to prevent loss of life and injury The relationship between the Universal Task List, critical tasks, and target capabilities forthe pandenie

fu scenario i illustrated in Sure 5

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‘Tosa, ad Trget Capsbity

‘expressed them in terms of desired operational outcomes and essential

‘characteristics, rather Usan dictating specifi, quantiNable responsibilities

to the various jurisdictions In the inal version of the National Preparedness Goal, DHS plans to ongarize clases of jurisdictions that share sinlar characterises such a total population, population density,

‘and erica infastractare into ters to account for reasonable aifferences

Am ©apahllQ levels among groups of jurisdictions Aecordingg to the Inten= National Preparedness Goal, the purpose of defining these groups of Jurisdictions is to beable to appropriately apportion responsibility for ‘development and maintenance of capabilties among levels of lovernmex and across these jurisdictional irs, because both the risk and the

resource base vary considerably artong jurisdictions across the United States

According to observations from 12 of the frst responder departments we interviewed, radiological and bilogical attacks sre among potential emergeney events they may face which the are least prepared for and riest concerned about their capabilites However, because these types of attacks may require that a greater numberof capabilites be exercised simultaneously or that a greater number or wider variety ofiest responders be employed to provide speciic capabilites, these capabilities

‘would necessarily be drawn from regional, federal, or private resources this regard the National Response Plan defines the roles and

responsibilities of federal state, local, privatesector, and nongovemmental organizations and citzens invalved in support of ( domestic ineident management, noting particularly that when state

resources and capabilities are overwhelmed, state governors are responsible for requesting felralasistance when it becomes clear that sate or tribal eapabilties wil be insufficient or have been exceeded or exhausted

As we have previously reported, state and local resources alone will ikely

be insufficient to meet the terrorist threat, gven the specialized resoures that are necessary to address some types of terrorist attacks, the range of overnmental services that could be affected, and the vital role played by private entities in preparing for and rtigating risks." Because no singe Jurisdiction or agency would be expected to perform every task, possession ofa target capability could involve enhancing and maining Toca resources, ensuring access to regional and federal resources, or san combination ofthe two, DIS encourages planing for regional

‘cooperation and notes inthe NRP that mutual id agreements provide

‘mechanisms to mobilize snd employ resources from neighboring

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-lsđicdons to suppor the incident command Faiitatng effective regional coordination may present some challenges For example, our

‘workin the National Capital Region found that no regional coordination

‘methods had been developed for planning forthe use of 16 ofthe

1 funding sources we reviewed” While the National Capital Region hao experience with working together for regional emergency preparedness and resporse, official from the National Capital Region told us that they tha not worked together to develop plans and coordinate expenditures for the use of federal funds

[DHS also issued National Preparedness Guidance in April 2005 that provides infomuation,intrictions and examples on how to prepare for Inmplementation ofthe goal at the federal, state and local levels of fovernment The guidance identifies the most urgent needs for enhancing

‘ational frst responder preparedness capabilities in tes of 7 national

‘Porites: (1) implementation of NEP and NIMS; 2) implementation of the {nterim National infrastructure Protection Plan; (3) expanding regional

‘cooperation; (4) strengthening capabilities in interoperable

‘corununications; (6) strengthening capabilites in information sharing and collaboration; (6) strengthening capabilites in mesical surge and mass prophylaxis; (7) strengthening capabilites in detection and response for

‘chemical, biological, radiological, nuclear, and explosive weapons Our review also indicated thatthe National Preparedness Guidance largely reflects an al-hazards approach and was developed in amanner that

‘recognizes a range of possible threats and origins Six of the 7 national pionites established and deserbed bythe guidance ae generally applicable to all hazards naditon to implementation of the 7 rational prions, the guidance identifies other all azards planning requirements {or federal, state, and loeal governments

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DHSss Implementation

Plans May Address the

Need fora Risk-Based,

Strate, : National

Approach to Enhancing

First Responders’ All-

Hazards Capabilities, But

It Fac’ liplementation

Challenges

National Preparedness

‘Assessment and Reporting,

Program Implementation Plan

‘We reported in our2ist century challenges work that Federal Investnm innational preparedness have not been guided by aclear, risk-based strategie plan The objective ofthe second tage of DELS's capabilities based planning process is to develop sucha plan by creating a decisir framework that will alow first responders tall levels of government, assess needs, update preparedness strategies, and allocate resources)

‘address capability gaps and make the greatest improvernents in preparedness To support its planning efforts in the second stage of Implementing HSPD'8, DHS has developed program implementation ix for (1) a national assessment and reporting of capability status, (2) an

‘approsch for balancing rational investments in capabilities, and (@) programs for national training, national exercises, and collection discemination of lessons leamed and best practices a

‘To develop these program implementation plans, DHS established tak teams composed of various stakeholders from within DHS as well as representatives from state and loal frst responders and representains from their professional associations such as the Intemational Associa

of Fire Chiefs and Chiefs of Police, andthe Intemational Association [Emergency Managers These stakeholder groups, called Invegrated Concept Teams, developed the thee program implementation requiem: plans, According to DHS, implementation wil beled by designated DIS rogram management offices along with stakeholders comprised of {ederal, state, loal tribal ofcials and private sector advisors; operand tasks willbe performed by contractors DHS plans to issue contrac ring fiscal year 2005, to develop systems to meet the goals ofthe Implementation plans, and complete implementation ofthe three natal systems by September 30,2008,

‘According to DHS's Assessment and Reporting Implementation Pa, 1S Intends to implement an assessment and reporting system t collect

‘preparedness data to inform decision-makers Capabilities ofthe federal government, states, local jurisdictions andthe at all levels on the private sector According to the plan, DHS intends to collect data fal {governmental recipients of direct funding, using states to collect ia fm local jurisdictions and using federal regulatory agencies and other appropriate sources to collect private-sector data According to DIS,

‘aggregating this data at all levels wil provide information needed0 allocate resources, execute training and exercises, and develop ase

‘status report on the nation’s preparedness The purpose ofthe sess and reporting system is to provide information about the baseline stat national preparedness and o serve as the third stage of DHSS cpt based planning approach to ensure that state and local fst respi

‘capabilites fully support the National Preparedness Goal, The proposed

‘ystems to include the following components Capabiity asessment: Using target capabilities, fist responders would bbe abe to assess their preparedness to identify gaps, excesses, or deficiencies in their existing capabilites or capabilities they wil be

‘expected o access through mutual ad In addition, this information sto measure the readiness of federal civil response assets and the wse of federal asitance athe state and local level and provide a means of assessing how federal assistance programs are supporting the National Preparedness Goal

Compliance assesement: By establishing a mechanism for monitoring

‘compliance with mandated guidance such as compliance with NIMS, and

‘conformity with guidance on the preparation of homeland security strategies and grants the compliance assessment is intended to serve asa

‘check and balance of the sefreported information in the capability Performance asseszment: BY using a standardized reporting that documents performance in specific tasks relevant to the target

‘capabilities fst responders wil be expected to demonstrate

‘accomplishments in exercises ad real-world operalions Par of the performance assessment is (o include corrective ation plas to Highlight land address areas in need of improvement

‘As DHS implements the assessment and reporting syser, it may

‘encounter several challenges, which were identified bythe assessment and

‘eporting concept team in developing the implementation plan These challenges ince:

Determining how to aggregate data frm federal state, local, and tba governments; private sector ownervoperators; non-profit agencies, and eltizen volunteers

Determining assessment timeframes (Le, snapshot, annual, realtime), and

‘when and Row often they should take place;

Integrating selEastessment and extemal assessment approaches; and Resolving securlty classification limitations on information sharing among participants

National Balanced Investment

Implementation Plan “According to DIES National Balanced Investment implementation Plax DHS intends to establish an approach to suppor improved investment decision-making, using the capability, compliance, and performance

Information provided by the asøcsgment and reporing system The

‘Purpose ofthe balanced investment program, according tothe plan, wll

be to direct federal preparedness assistance fo the highest priority, capability gps, balanced by sigufcant risk factors The proposed systern Isto include the following components

Alt Hazards Nees Assessment: Using information on preparedness gaps

‘and redundancies identified by the assessment and reporting system, DELS Intends to use siate- developed needs assessments to deny and quantify planning, equipment, training and exereises, and other organizational heeds, These needs assessments are to ince inp from the rt

responder comununity, the private sector, the esearch ad academic

‘community, citizen groups, and tribal entities DHS plans to direct the sates to prioritize the needs they identify inthe needs assessments based fon various factors, including threats and vulnerabilities ter, universal tasks, probability, impact, risk and coseneft analysts Then, DUS expects to use the needs assesements to develop guidance, specially tailored to state and local funding reiplents, to guide the allocation of federal funding and resources in oder to fil capability gaps

Alt azards Preparedness Stratopes: Needs assessments wil provide a

‘consistent bass for developing preparedness strateges for federal,

‘egional, state, urban area, local an tribal ist responders, DIS plans to develop and provide guidance and requirements so that strategies at all, levels will align with the National Preparedness Goa and facie operation, mutual ald, and standardization across jurisdictions

Alb Hazards Decision Frameworks DIAS intend o design a framework for

‘locating resources to implement federal, regional, state urban area local and tial frst responders strategies Using a strictured process to estimate the relative impacto alternative investments and identify the

‘optimal mix of investments for funding, DBS plans o assess, pronize and {develop optimized ranking of potential investments based on factors suck

‘as popalation concentrations, erica nfastructure and other sgaicant isk factors

Inthe implementation oft balanced investinen program DHS intends to devise a process to priontize investments in planning, personnel,

‘equipment, sing, and exercises to close capability gaps identified by the national assessment and reporting system A key challenge wil be establishing a standardized approach for measuring and reporting the tks

[National Training and Exereise

and Lessons Leamed Plan

Taced by diverse ates and localities in order to effectively priondize and allocate federal resources Given thatthe 15 national planning scenarios

‘DHS used to identity capability gaps were selected without regard to relative risk (Le probability of occurrence), itis not yet clear how DHS

‘will prioritize investments in capability gaps ona national level We have consistently advocated a risk management approach as a bass for

‘ensuring that specific programs and related expenditures are prioritized

‘and properly focused Although risk management isan evolving practice,

‘we have encouraged the application of cerian key elements of arisk

‘management approach, including a risk assessment that defines risks based on the likelihood that they will occur and the consequences of their

‘ccurrence Another key elertent ofthe risk management approach we have advocated isthe identification of risk mitigation alternatives and the 2PIlt to select among those altematives based on risk, cost, ad

‘ffectiveness The intent of DHS's planned al-hazands decision framework

to prioritize and optimize investments based on population, ertical Infrastructure, and other sgificant risk factors appears to offer the

‘opportunity for sich an approach to managing risk: However, a DUIS does not expect to fully implement its balanced investment program before October 2008, it continues to operate its federal preparedness assistance programs without a solid risk-based decison framework, and we were ‘unable to evaluate whether andthe extent to which such a framework will, Incorporate these key elements of risk management For example, tis not clear how DHS wil use the data collected in the allhazards needs

assessment to consistently and comprehensively prioritize resource allocations based on national teats and vulnerabilities or how the department will define acceptable risks as it sets priorities

According to DHS's National Training and Exercises and Lessons Learned Implementation Pan, DHS intends to implement a system to develop and

‘maintain state and local responders all hazards capabilites The goal of this system is to provide integrated national programs for taining, exercise and lessonsleared that will reorient existing inddatives at all govertment levels in order to develop, achive, ad sustain the

capabilities that are required to achieve the National Preparedness Goal

‘The proposed system 1s to include the following components

‘National training program: Based on training needs defined by the Universal Task List, Target Capabilities List and the National Incident

‘Management System, the program is intended to provide eriteria for Aacerediation of training courses, a national diretory of aeeredited

‘raining providers anda National Minimum Qualification Standards Guide,

‘National exercise program: This programs intended toreorient the

‘existing National Exercise Program to Incorporate the capabilities-based planning process and provide siandantized guidance and methodologies ‘schedule, design, develop, execute, and evaluate exercises at all Levels of

‘government, This program is aso intended to provide requirements far die umber and typeof exercises that communities of varying sizess should

‘onde to meet the National Preparedness Gl

‘National tessons-learned program: This program s intended to create a centralized source for sharing lessons learned information that will be viewed and validated ata rational level using a standardized reporting format and process

DHS faces challenges to coortinate this effort across the many state and local jursditions and among the variety of first responder disciplines

‘According to this integrated concept team’s meeting minutes, ts efforts

‘were essertial in order to develop a management system to ensure ene are standard processes across all agencies Among other things, DHS faces challenges related to:

Disparate traning requirements across disciplines, Different processes to manage training and exercises, and Different terms and definitions among disciplines related to emergency response functions

‘Terrorist attacks share many common characteristics wih natural and accidental disasters Our analysis of DAS's Target Capabilities List and out éfscussions with fst responders and other emergency management

‘stakeholders revealed thatthe capabties required to adress terrst fttacks and to address natural and accidenial disasters are most sar {or protection, response, and recovery, and differ most for prevention

‘More specifically, 30 ofthe 6 target capabilites yielded by DHS

‘capabilites based planning process appy acros all types of emery

‘evens, Lis posible that terrorist attacks coud be prevented Hog actionable ittelgence (Le, information that ean lead vo stopping or Apptchending terrorists), but there iso lawn way to prevent rr sdsasters such as hurcanes, earthquakes, and tomadoes, Naturar lccidental disasters differ from terrorist attacks in that they are

‘unintentional and unplanned rather than the result of deliberate lan action Its the deliberate, planed nature of terrorist attacks ta mes preventive efforts for such attacks prinipally the responsibility ot {nteligence and law enforcement agencies

‘Terrorist Attacks Share Because terorst tacks share many common characteristics with natural Common Characteristics

with Natural and

Accidental Disasters, and

Most Preparedness

Capabilities are Similar for

All Emergency Events

and accidental disasters, many ofthe capabilites frst responders need

‘suppor rational preparedness efforts ae similar As shown in table

‘many terrorist attacks are analogous to natural av aceldental disasters

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For example, chemical attacks would resemble hazardous materials spills

‘that release siilar chemicals on highways or accidents that cause toxic

‘gases to leak from rll ars, a small scale biological attack using a

‘common disease organism would resemble a natural outbreak, the asks

‘required to respond following large explosions are analogous to those

‘necessary for responding to the aftermath oftomadoes, and preparedness {or “ity bomb" attacks requires practice that responders whose

Jurisdictions encompass nuclear power plants regularly exercise, Accorting o other emergency professionals we consulted and the

‘observations of selected officials from fist responder departments we interviewed As one expert explained, managing the Pentagon scene on September Ii, 2001, consisted of five interrelated al-hazards response routines plane crash, building fire, collapsed structure, erie seen, and

‘rowed control According to DHS official, thelr analysis ofthe Homeland

‘Security Council's 16 scenarios revealed that approximately 80 percent of necessary tasks would need to be performed regardless of the senari To lchleve the performance of critical homeland security tasks, DHS has

‘adopted an approach tothe implementation of HSPD'8 that centers on building specific prevention, protection, response, and recovery

‘capabilities within and among four related homeland security mission areas Table 3 deserbes each mision area

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Because ofthe sllanties berween the effects of terrorist attacks and

‘natural or accidental disasters, much of the planning, personnel, raining

‘and equipment that form the basis of protection, response, and recovery

‘capabilities are similar across all emergency events, though certain mission areas are more alae than others Specialy, our analysis of DiS's detailed detntions and descriptions ofthe 26 target capabilities showed that only 6of the capabilities are described as being specific tO

‘erorist stacks Five of these 6 capabilites fll into DHS's prevention rision area, and one isin the protection mission area The remaining

80 capabilities address preparedness forall hazards DIS officals reviewed our analysis and agreed with our assessment ofthe relative applcabiity ofthe 36 target capabilites to various hazards Table 4 ists

‘the 36 target capabilites, the respective homeland security mission area

‘where the capability is found, and the extent to which the various

‘components ofthe eapabilty address preparedness forall hazards"

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‘many emergency response representatives we consulted agreed that

‘substantial overlap exists between capabilities that are needed for natural

‘ad accidental disaters and those that are needed for terrorist laces,

‘These shared capablities would allow forthe performance of bros tasks

‘ch as controling entry to emergency areas, recovenng vctins, eating the land injure, providing base living needs for sureivors and their families transporting the dead, restoring essential services, handing public led, providing a bass for recovery, andl maintaining law ard onler

Prevention Capabilities Terris attack differ from natural and accidental disasters becasethey Differ for ‘Terrorism LE Ee are intentionally perpetrated act thal could possibly he prevented ee eee reas: cr

ee eee cere,