(U//FOUO) DHS Strategy for Improving Improvised Nuclear Device Attack Response

DHS Strategy for Improving the National Response and Recovery from an IND Attack

58 pages
For Official Use Only
March 2010

The mission of the Department of Homeland Security (DHS) includes acting as a focal point regarding natural and manmade crises and emergency planning. In support of the Department’s mission, the primary mission of the Federal Emergency Management Agency (FEMA) is to reduce the loss of life and property and protect the Nation from all hazards, including natural disasters, acts of terrorism, and other man-made disasters, by leading and supporting the Nation in a risk-based, comprehensive emergency management system of preparedness, protection, response, recovery, and mitigation. Consistent with these missions, the Nuclear/Radiological Incident Annex to the National Response Framework (June 2008) sets forth DHS as the coordinating agency for all deliberate attacks involving nuclear/radiological materials, including radiological dispersal devices (RDDs) and improvised nuclear devices (INDs). The detonation of an IND would result in a complex catastrophic disaster that would severely challenge the nation’s ability to effectively respond in a timely manner. The scope, severity, and complexity of the response required for an IND incident call for a highly organized and efficient management structure. Such an event will cross geographic jurisdictional boundaries and will involve multiple levels of government (federal, state, local, tribal, and territorial), as well as the private sector. While all emergencies begin as local events, it is anticipated that state and local resources would be overwhelmed by an IND and that a rapid, well coordinated federal response would be required for life-saving activities and long-term support. However, the state emergency management infrastructure is generally still expected to exist and have sufficient capacity to control response actions in its state.

In December of 2008, the DHS Deputy Secretary signed the intra-departmental Integrated Planning Guidance (IPG) for Fiscal Years (FY) 2011-2015 that identified FEMA as the departmental lead for response and recovery efforts associated with the terrorist use of an IND. Additionally, the IPG directs FEMA to develop and implement an IND Response and Recovery Program within FEMA no later than FY 2010. FEMA has developed a Management Plan for this new program, and will rely upon the acquisition management process contained in DHS Acquisition Directive 102-01to ensure that identified gaps and associated tasks will be defined to be measureable and achievable. The Capability, Objective, Resources, and Evaluative Measures (CORE) document appended to the FY11-15 IPG provides the initial list of gaps to be addressed under the program, and specifies initial metrics and performance goals to strive towards. During the extensive discussions following publication of the CORE document, the target objectives were augmented. The improved list of objectives has been incorporated into this Strategy, and will provide the basis for the subsequent Strategic Plan and other documents that will define the IND Response and Recovery program.

Building upon the guidelines contained within the National Response Framework (NRF) and the IPG, this DHS Strategy for Improving the National Response and Recovery from an IND Attack (IND Response Strategy identifies those capabilities needed to respond to and recover from an IND incident within the NRF and its annexes. It does not identify specific solutions for identified capability gaps, nor does it identify the agency responsible for addressing those gaps. It sets the goals and objectives from which a DHS led national plan may be developed to address vulnerabilities and gives strategic direction in meeting the IND response and recovery mission.

…

The mission of the Department of Homeland Security (DHS) includes acting as a focal point regarding natural and manmade crises and emergency planning. In support of the Department’s mission, the primary mission of the Federal Emergency Management Agency (FEMA) is to reduce the loss of life and property and protect the Nation from all hazards, including natural disasters, acts of terrorism, and other man-made disasters, by leading and supporting the Nation in a risk-based, comprehensive emergency management system of preparedness, protection, response, recovery, and mitigation. Consistent with these missions, the Nuclear/Radiological Incident Annex to the National Response Framework (June 2008) sets forth DHS as the coordinating agency for all deliberate attacks involving nuclear/radiological materials, including radiological dispersal devices (RDDs) and improvised nuclear devices (INDs).

The detonation of an IND in a major urban area would result in a complex catastrophic disaster that would severely challenge the nation’s ability to effectively respond in a timely manner. While all emergencies begin as local events, it can be anticipated that state and local resources would be overwhelmed by an IND, and a rapid well-coordinated federal response with locals and states is
required for life-saving activities and long-term support.

In 2008, the DHS Office of Policy Requirements Planning Team (RPT) generated the Nuclear Response and Short-Term Recovery Capability, Objective, Resources, and Evaluative Measures (CORE) document with support from the federal interagency community. This CORE document identifies desired capabilities and associated priority objectives to effectively and efficiently respond to a terrorist nuclear attack. In December of 2008, the DHS Deputy Secretary signed the Integrated Planning Guidance (IPG) for Fiscal Years (FY) 2011-2015 that identified FEMA as the Department’s lead for response and recovery efforts associated with the terrorist use of an IND. The RPT’s CORE document provides the basis for the DHS Integrated Planning Guidance (IPG) and this strategy.

…

The private sector will play an invaluable role in effective IND response and recovery. However, agreements need to be established ahead of time, and exercised often, if there is to be a seamless integration of government and private sector resources. Mutual Aid Agreements, MOUs, MOAs, and other such pre-negotiated agreements can substantially improve the ability of a jurisdiction to recover from an IND incident, while not relying on technology development or extensive hardware investments.

Much of the impact of a nuclear device involves blast (structural) damage coupled with radioactive contamination. Resources to clear and manage large amounts of radioactively contaminated debris will be limited, and impacted jurisdictions will need a location where such contaminated materials can be safety transported and stored. In the aftermath of the attacks of 9/11, a huge effort was required to recover personal effects and traces of victims from the mountains of material removed from the site of the World Trade Center. The aftermath of an IND would dwarf that effort, and must be planned carefully in advance.