AN ALL-HAZARDS TRAINING CENTER FOR A CATASTROPHIC EMERGENCY Colonel Xavier Stewart Pennsylvania Army National Guard December 2009 Visit our website for other free publication downloads http://www.StrategicStudiesInstitute.army.mil/ To rate this publication click here. The views expressed in this report are those of the author and do not necessarily reflect the official policy or position of the Department of the Army, the Department of Defense, or the U.S. Government. Authors of Strategic Studies Institute (SSI) publications enjoy full academic freedom, provided they do not disclose classified information, jeopardize operations security, or misrepresent official U.S. policy. Such academic freedom empowers them to offer new and sometimes controversial perspectives in the interest of furthering debate on key issues. 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Hard copies of this report also may be ordered from our homepage. SSI’s homepage address is: www.StrategicStudiesInstitute.army.mil. ***** The Strategic Studies Institute publishes a monthly e-mail newsletter to update the national security community on the research of our analysts, recent and forthcoming publications, and upcoming conferences sponsored by the Institute. Each newsletter also provides a strategic commentary by one of our research analysts. If you are interested in receiving this newsletter, please subscribe on our homepage at www. StrategicStudiesInstitute.army.mil/newsletter/. ISBN 1-58487-417-1 ii PREFACE The U.S. Army War College provides an excellent environment for selected military officers and government civilians to reflect on and use their career experience to explore a wide range of strategic issues. To assure that the research conducted by Army War College students is available to Army and Department of Defense leaders, the Strategic Studies Institute publishes selected papers in its “Carlisle Papers” Series. ANTULIO J. ECHEVARRIA II Director of Research Strategic Studies Institute iii ABOUT THE AUTHOR XAVIER STEWART is Director, Military Support to Civil Authorities and Deputy Director of Intelligence and Operations (J2/3), Joint Forces Headquarters-Pennsylvania. He sits on numerous chemical, biological, radiological, nuclear, high yield explosive / weapons of mass destruction (CBRNE/WMD) advisory boards. Colonel Stewart was the Commander, 3rd Weapons of Mass Destruction-Civil Support Team, U.S. Army (PARNG) from 1998- 2005. He is a member of the Homeland Security Advisory Board, American College in Forensic Examination (ACFE), and is a certified member of the Homeland Security faculty at the Center for Homeland Security-Level V. Colonel Stewart has over 30 years of distinguished military service. A former United States Marine, Colonel Stewart joined the Army National Guard in 1978. His duties in the Maryland, Georgia, and Delaware National Guard included assignments with the Military Police, Military Intelligence, Physical Security, Military Academy, and Medical Service Corps. He held college faculty appointments as: adjunct professor for California College Respiratory Therapy Program, adjunct assistant professor at the University of Nebraska Graduate School Physician Assistant Program, Wilmington University Graduate School Nurse Practitioner Program, visiting Assistant Professor of Rehabilitation Services and Natural Sciences at the University of Maryland Eastern Shore, and adjunct faculty of Biology at Wesley College. He is on the advisory board for Homeland Security at Long Island University, New York; Saint Joseph University, Pennsylvania; and the University of Pittsburgh Medical Center, Pennsylvania. He returned to active duty (Title 32 PANG) to assume command of the 3rd WMD-CST in December 1998. A board certified forensic examiner and board certified in forensic medicine, Colonel Stewart has more than 20 years experience in healthcare as a Respiratory Care Practitioner. He is a registered respiratory therapist and practiced in Virginia, Maryland, Delaware, Georgia, Pennsylvania, and Florida. He is a volunteer first responder as a nationally registered emergency medical technician. He was a former hazardous material (HAZMAT) technician, firefighter, and part-time deputy sheriff. Colonel Stewart is a graduate of the Command and General Staff College, the Joint Senior Leaders Chemical Corps Course, the NORTHCOM Dual Status T10/32 Joint Forces Command Course, and the Defense Support of Civil Authorities (DSCA) Course. Colonel Stewart holds a master’s degree in education with a concentration in Health Sciences, a doctorate degree in public health, and is a member of the USAWC Class of 2009. iv ABSTRACT Since assuming command in 1998 of the first Civil Support Team (CST) Weapons of Mass Destruction (WMD), Colonel Stewart witnessed and experienced dramatic changes in homeland security theory, policy, and practice. Understandably, the most significant changes have occurred since the horrific attacks on September 11, 2001, which violently demonstrated how turbulent today’s world strategic environment is. Widely available chemical, biological, radiological, nuclear, high yield explosive, and cyberspace security (CBRNE-C) materials, technologies, and equipment often have dual uses. Preventing rogue states and terrorist organizations from acquiring these materials is a necessary but formidable challenge. Additionally, the cyber domain has grown tremendously and may be used to target key infrastructure and resources. In addition to these threats, dramatic weather changes have caused unusual and devastating shifts in weather patterns, which in turn have triggered catastrophic events. This paper proposes establishment of All-Hazard Training Centers (AHTC) in the 10 Federal Emergency Management Agency (FEMA) regions to train CST WMD and emergency responders for CBRNE-C events or natural catastrophes. v AN ALL-HAZARDS TRAINING CENTER FOR A CATASTROPHIC EMERGENCY The Role of Civil Support Teams (Weapons of Mass Destruction). Prior to September 11, 2001 (9/11), international terrorism targeting the U.S. homeland, and Weapons of Mass Destruction (WMD) were mostly topics for casual discussion and intellectual debate. At the forefront of emergency planning were responses to natural disasters. Civil defense was thought to be irrelevant. However, in 1998, Richard Preston’s The Cobra Event convinced the Clinton administration to place greater emphasis on WMD, specifically on biological warfare. President Clinton directed the establishment of National Guard Weapons of Mass Destruction Civil Support Teams (formerly Rapid Assessment Initial Detection Teams) and increased spending on domestic preparedness. He issued Presidential Decision Directives 62 and 63 to combat the growing threat of terrorism, and to implement measures to identify and protect the nation’s critical infrastructure, respectively. In 1998, Colonel Stewart assumed command of the first Rapid Assessment Initial Detection (RAID) Team. His team was comprised of 22 full-time Title 32 Army and Air National Guard personnel who were highly trained in their respective Military Occupational Specialties/Air Force Specialty Code (MOS/AFSC) but lacked the technical didactic background and hands-on experience to respond to a WMD incident. There was no training curriculum for the original 10 Civil Support Teams (CSTs). The Pentagon rushed to select schools that provided chemical, biological, radiological, nuclear, and high-yield explosive (CBRNE) training. These schools were located throughout the country in a variety of Department of Defense (DoD), federal, state, and civilian programs. There was no standardized curriculum—courses were constantly added and others deleted. Through a haphazard educational process, Colonel Stewart’s team received over 2,000 hours of training in CBRNE, incident command, hazardous material (HAZMAT), occupational safety, domestic preparedness, and military support to civil authority topics. His team spent over 22 months in 12 different states, using 240 days of temporary duty (TDY) during the first year of training, and 221 days of TDY for the second year of training. Throughout this training experience, Colonel Stewart observed that there was no methodology to validate both the didactic and hands-on training for new personnel. Furthermore, this arbitrary training program was time consuming and expensive. There were no tools to measure the effectiveness and quality of the training provided to the CSTs. The curriculum was not standardized, therefore, as new RAID teams were established in the 10 Federal Emergency Management Agency (FEMA) regions, the degree of expertise and reliability exhibited by these teams varied by region. Through 1999 and 2000, RAID Teams designation changed to Military Support Detachment (MSD) then to Weapons of Mass Destruction Civil Support Team (WMD CST) and to the current designation as Civil Support Team (WMD). However, the variability of training and standardization did not change. Today there are 55 teams (53 states and territories, the District of Columbia, and two teams for California), with another two teams being established, one for New York City and one for Florida. 1 As the teams were being formed, some unit commanders opted for local training, and others sought training from myriad CBRNE/WMD schools and programs. Colonel Stewart established a core curriculum and mandatory training programs for his team by using a mobile training team (MTT) process from established and accredited schools. Eventually the National Guard Bureau (NGB) became the lead agency for the CSTs. In 1999, a standardized training program was established at Fort Leonard Wood, Missouri. A core curriculum providing the minimum competency was developed for all teams. Individuals are currently required to complete a 7-week core curriculum with both didactic and hands-on training. Upon completion of this training, the “R1” Additional Skill Identifier (ASI) is awarded to the Soldier or Airman. Although NGB-directed training has improved the capability of the CST (WMD) teams to respond to CBRNE/WMD/HAZMAT incidents, the CST (WMD) performance varies widely. A regional training program with a standardized core curriculum and centers to evaluate the CST (WMD) teams in a simulated CBRNE/WMD/HAZMAT environment would significantly improve the capability of these teams to support civil authorities. Colonel Stewart’s 6 1/2 years experience with more than 45 real-world mission deployments, 125-plus training events as a CST (WMD) commander, and 3 years experience as the Joint Director of Military Support of Civil Authorities leads him to conclude that CST (WMD) teams and emergency responders need the equivalent of what is afforded to operational military brigade-sized units—a combat training center (CTC). It is proposed that these CST (WMD) and emergency responder training centers be designated as an All-Hazards Training Center (AHTC). This type of center is necessary for the following reasons. Today’s global strategic environment remains turbulent. Since the 9/11 attacks on the U.S. homeland, Americans have become increasingly more vigilant to the ongoing threat of terrorism. Widely available chemical, biological, radiological, nuclear, and high yield explosive, and cyberspace security (CBRNE-C) materials, technologies, and equipment often have dual uses. Preventing rogue states and terrorist organizations (state or non-state supported) from acquiring these materials is a formidable but necessary task. CBRNE-C and the threat from cyber attacks are also of significant concern. Concurrently, the world is experiencing dramatic weather changes. Global climate change has caused unusual shifts in weather patterns, which in turn have triggered catastrophic events. U.S. emergency relief teams are challenged to respond to these national events in a timely manner in order to save lives and property. The events of 9/11 reverberated throughout the nation and the world. No longer was terrorism against the homeland just a theoretical issue. America found itself embroiled in a war unlike any it had ever experienced. The enemy was among us, virtually undetectable. He wore no uniform; there were no front lines to delineate friend from foe. It was obvious that this enemy had the advantage of years of planning, abundant resources, and the ability to strike at the time, place, and manner of his choosing. To further complicate security issues, hurricanes Katrina and Rita exposed weaknesses in emergency response planning and coordination for natural disasters at local, state, and national levels. The U.S. war on terrorism has become decidedly more complex as rogue states and terrorist organizations (state or non-state supported) seek to acquire WMD materials. Terrorist groups may be in possession of nuclear weapons obtained either from one of the former members of the Soviet Union or from one of the other emerging nuclear 2 powers. Our porous borders do not hinder our adversaries’ capability to smuggle such a weapon into this country undetected. Iran and North Korea are aggressively pursuing nuclear weapons and delivery capabilities. Public confidence in the Emergency Response Communities’ (ERC) ability to respond to natural or man-made disasters has also been shaken. Recent changes in the Department of Homeland Security’s (DHS) structure and budget allocations reflect not only the public’s concern, but also the realization by government officials that past practices and priorities needed to be revised. There are currently over eight million first responders within the continental United States. In addition, there are over one million federal and state employees with emergency management responsibilities. In spite of the government’s best efforts, only a relatively small number of these emergency responders and managers are adequately trained to deal with natural or man-made disasters. Training programs vary from state to state and community to community. Some state training efforts are as rudimentary as practicing academic thought drills while other states conduct training as complex as full scale exercises involving local, state, and federal agencies. Colonel Stewart has experienced the full range of this training inconsistency. Inadequate responses to catastrophic events could disrupt governmental operations and threaten continuity of operations and continuity of government (COOP/COG) during national emergencies. Development of AHTC is imperative to ensure provision of COOP/COG and to prepare the United States for imminent CBRNE-C incidents in the 21st century. The establishment of a network of AHTCs in the 10 FEMA regions (where the original 10 CSTs were developed) will provide the federal government with highly trained emergency responders. A standardized quality control program will support response to CBRNE-C events in a timely and effective manner. These regional training centers would serve CST (WMD) and emergency responders by minimizing their training travel time and expenses. A strategic methodology and standardized template for AHTC training will provide hands-on training and education to enable the United States to be better prepared to maintain COOP/COG. This methodology and template should be incorporated into a future Presidential Policy Directive (PPD) by the Obama administration. Clinton’s Presidential Decision Directive (PDD) 67 required planning to ensure the continuity of essential government services during emergency situations. It designated FEMA as executive agent for executive branch COOP planning. In response, in July 1999, FEMA issued guidance with Federal Preparedness Circular (FPC) 65 which addressed COOP capability and planning for federal agencies.1 In 1999, the Director of the Office of Management and Budget (OMB) identified 42 programs with a high impact on the public, 38 of which were the responsibility of 23 major departments and agencies. Although PDD 67 is a Top Secret document of the National Security Council (NSC), FPC 65 and other unclassified documents have identified government-wide deficiencies, including potential disruptions of governmental services that could impair appropriate emergency responses.2 Indeed, an inadequate response to a catastrophic emergency could disastrously disrupt federal government operations. Consequently, throughout this section and based on his vast experience, the author has identified several special considerations in today’s global environment that pertain to CBRNE-C and catastrophic events. These special 3 considerations warrant the establishment of a strategic methodology and a standardized template for utilizing an AHTC as a force multiplier in support of federal, state, and local governments. The proposed AHTCs will provide first-rate professional and standardized training and education programs that will significantly enhance the effectiveness of a national response to any type of emergency. This recommended solution supports the various homeland security goals and objectives outlined in the following national strategies: National Strategy for Homeland Security,3 National Strategy for Pandemic Influenza,4 National Strategy for Combating Terrorism,5 Homeland Security Pandemic Influenza CI/KR,6 the National Security Strategy,7 National Strategy to Combat Weapons of Mass Destruction,8 National Military Strategic Plan on the War on Terrorism,9 Homeland Security Presidential Directive-5 (HSPD-5), National Incident Management System (NIMS), the National Response Framework (NRF), and the 15 Emergency Support Functions (ESF’s) under the Incident Command System (ICS) plan to ensure COOP/ COG. Biological Threats. Biological diseases have plagued our planet since the dawn of mankind. These diseases are usually spread by vectors (human or nonhuman). Bacteria, viruses, and toxins are biological agents that have caused large numbers of deaths throughout human history, usually through lack of knowledge of proper sanitation, poor hygiene, or lack of waste treatment facilities. The weaponization of biological agents is increasing, particularly among underdeveloped nations. Uses of biological weapons and agents historically are well- documented. The Assyrians poisoned enemy wells in the 16th century BC, and the Tartar Army hurled dead plague-infested corpses over city walls.10 With technological advancements, scientists began to improve biological processes. “Today, scientists can engineer organisms to exhibit specific traits and resistant characteristics.”11 The threat from a biological weapon purposely released by a terrorist or accidentally discharged is of concern. In April 1979, over 800 residents died in a local Russian community near the Soviet biological research facility located in Sverdlovsk, Russia, due to an accidental release of an aerosol anthrax spore.12 This highly lethal anthrax strain was being weaponized through technical engineering. More recently, on January 21, 2009, in the Islamic Maghreb, 40 members of al-Qaeda died in Algeria from the plague. This outbreak may have been the result of experimentation with developing biological weapons.13 Biological weapons and agents have the potential bring about widespread global devastation. They are the most difficult of all CBRNE-C events to control, prevent, or respond to. The potential danger that biological agents pose to civilization emphases the necessity for the development of an AHTC that will provide CST (WMD) and emergency responders a state-of–the–art training center. 4