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HomeMy WebLinkAboutDCPA Budget and Program for 1977 TEXAS DEPARTMENT OF PUBLIC SAFETY WILSON E. SPEIR DIVISION OF DISASTER EMERGENCY SERVICES CD —I2 Director M. P. BOWDEN State Coordinator Date February 4, 1976 TO: Civil Defense Director Addressed FROM: Marion P. Bowden, State Coordinator�/,y� SUBJECT: DCPA Budget and Program for FY 1977 Attachments as listed below are included for your information: A. DCPA Mission Statement B. FY 1977 Budget - DCPA C. Resolution of NASDDP and USCDC January 22, 1976 D. DCPA Fiscal Year 1977 Program Emphasis January 26, 1976 The Mission Statement by Office of Management and Budget (OMB) restricts DCPA to nuclear preparedness and will not permit use of DCPA funds for natural disaster preparedness. This restriction has been approved by the President; therefore, DCPA will be required to expend the proposed $71, 000, 000 for nuclear preparedness unless Congress includes a statement in the appropriations act as outlined in Attachment C. DCPA MISSION STATEMENT Federal, State and local natural disaster organizations are heavily dependent upon DCPA for support. DCPA funding provides a base of resources, common to both natural and nuclear preparedness, upon which they develop their natural disaster programs. • This situation will be reversed. DCPA will build its peculiar nuclear disaster requirements upon the common base provided by other Federal, State and local agencies for natural disaster preparedness. DCPA should recognize and rely upon this common base and provide only those additional resources which are peculiar to nuclear disaster preparedness. In effect: DCPA will reduce and /or eliminate functions which should be supported by other Federal agencies, and State and local governments be- cause they are required for natural disaster preparedness. Under this concept, reductions will be made in: (1) DCPA staff personnel (P&A) who are in State and local offices which we feel are being utilized for natural disaster preparedness. (2) Procurement of emergency vehicles and equipment which are justi- fied as civil defense vehicles but which are used mainly for normal community rescue operations, and (3) Construction funds for Emergency Operation Centers in areas which have a low probability of being affected by a nuclear weapon. DCPA will continue to support functions which other Federal, State and local agencies would not be expected to support since they relate mainly to nuclear preparedness. These will include: (1) The National Communication and Warning System which is required for citizen notification in case of nuclear attack; (2) Preparation and publication of material relating to nuclear disaster preparedness. (3) Procurement and maintenance of radiological monitors to measure the effects of radioactive contamination; and (4) Planning related to the city evacuation program. Attachment A FY 1977 Budget - DCPA Operation and Maintenance Appropriation Actual Estimate Estimate Estimate FY 1975 FY 1976 FY 19TQ FY 1977 FACILITIES $ 7,548,906 $ 7,633,294 $ 1,757,000 $ 4,600,000 OPERATIONS 22,017,433 20,710,900 4,523,000 27,700,000 CITIZEN INFORMATION & EDUCATION 1,646,425 2,122,000 118,000 200,000 RESEARCH AND DEVELOPMENT 1,668,313 1,706,380 375,000 1,000,000 MANAGEMENT 51,862,315 54,943,000 12,718,000 37,500,000 (P &A) (28,353,359) (29,600,000) (7,400,000) (20,100,000) 8 ��� 3 ,� �7 f1� s� fC/ ',G-n ,, crn , O�� Attachment B Washington, D. C. January 22, 1976 The representatives of the National Association of State Directors for Disaster Preparedness and the United States Civil Defense Council in conference this date agree that each organization cannot accept the changes in concept or the funding level for Fiscal Year 1977 as presented by the Defense Civil Preparedness Agency and further agree that they will pursue the two principles of activity as delineated herein: In order to continue the preparedness and response programs on an interim basis the following short range remedies should be sought -- 1. An F Y 7 7 Budget request of one - hundred - twenty -three million dollars. 2. Seek an expression from Congress to indicate that it is their intent that D CPA shall have authority to continue to disburse federal funds for support of States and their political subdivisions in accordance with long standing established federal policies and precedents. Attachment C ,0- -41W\ DEFENSE CIVIL PREPAREDNESS AGENCY 41 l''' R�i G4OMIVE � � MI FIDERAk3i "��iAL-- GENATER DENTON -TEMA9 —7649.1 ��t Washington, D.C. 20301 s � + t s O r r January 26, 1976 FISCAL YEAR 1977 PROGRAM EMPHASIS This program emphasis paper is provided to Regional and State Directors as a basis for developing program emphasis and programs for Fiscal Year 1977, and justification for Federal financial assistance. (Fy 1977 extends from October 1, 1976 through September 30, 1977.) I. General Effective with FY 1977, in consonance with decision by the Secretary of Defense, the civil defense program will be reoriented to limit Depart- ment of Defense support to those functions narrowly related to nuclear disaster preparedness. In furtherance of this redefinition of the scope of the program, DCPA has been directed to reduce and /or eliminate those civil defense activities which are being utilized primarily for natural disaster preparedness. Capabilities required for nuclear disaster will be built upon the emergency operations base provided by other Federal, State, and local agencies. II. Program Reorientation The foregoing reorientation of the program will be reflected in the FY 1977 civil defense budget, which will be significantly reduced from the FY 1976 level. The program reorientation and budget reducti on will require changes of the general nature outlined below, with additional details on such changes to be provided in the near future. Within the constraints of funds and effort available, DCPA will do its utmost to develop and improve nuclear disaster readiness in communities throughout the United States, as an essential element of the overall U.S. strategic deterrence posture. In this effort, DCPA will seek the active cooperation and participation of local and State governments, pursuant to the joint Federal - State -local responsibility for civil defense required by the Congress, as stated in Section 2 of the Federal Civil Defense Act of 1950, as amended. Personnel and Administrative (PEA) Expenses Program Funds for support of State and local civil defense personnel under the P &A program will be reduced from the FY 1976 level, and will be strictly limited to support of personnel performing functions essential for nuclear disaster preparedness. Q� ,Io '0 U �� m Attachment D 1. 22 'fie -19Te 2 Limitations will be placed on the maximum number of workyears to be funded at the local and State government levels, for nuclear disaster preparedness. These limitations will be based on the functions which must be performed and the scope of State and local requirements for major disaster preparedness, within the context of the national program. At the State and local levels, DCPA will specify the types of functions eligible for P &A funding. Each State, in accordance with Section 205 of the Federal Civil Defense Act of 1950, as amended, must employ a full -time Director or Deputy Director (or Coordinator). In addition, minimum essential functions to be performed by P&A supported personnel in each State include development and maintenance of those plans, procedures, systems, and capabilities essential for nuclear disaster preparedness and operations. These include Nuclear Civil Protection planning as outlined below for P &A supported personnel, as well as develop- ment and maintenance of plans, procedures, systems, and capabilities for (1) Direction and Control of coordinated operations, in a nuclear disaster, by civil government authorities in an EOC; (2) Attack Warning; (3) Radio- logical Defense; and (4) Emergency Public Information -- including the emer- gency communications essential to the four functions just enumerated. State personnel performing Field Officer functions will also be supported to work directly with localities in development of nuclear disaster readiness, in particular localities without a civil defense staff, and such Field Officer personnel may be located either at State Headquarters or throughout the State. Additional functions which may also be considered for support under the P &A program include Training and Education as well as administrative and clerical functions. At the local level, DCPA will provide P &A support for personnel performing functions essential for the development of plans, procedures, systems, and capabilities for nuclear disaster preparedness. (These functions include NCP planning as well as Direction and Control, Attack Warning, Radiological Defense, and Emergency Public Information, together with communications essential to the foregoing.) If the local Director's position is defined by State or local legislation to include natural disaster or other non - nuclear preparedness functions, then only that portion of the local Director's effort devoted to nuclear preparedness functions will be supported by P &A funds, provided that portion is not less than 50 %. Limitations on the number of workyears to be supported under the P&A program, at the local government level, will be based on minimum levels for staffing as outlined in the "Standards for Local Civil Preparedness," CPG 1 - 5. DCPA will provide additional guidance on administration of P&A funds along the lines outlined above. 3 Nuclear Civil Protection and Shelter Programs The term Nuclear Civil Protection (NCP) refers to those plans and capabilities needed for operations during periods of severe international crisis or of attack upon the United States. NCP planning will provide the following two options: (1) Ability to protect the population essentially in- place, in the best shelter available at or near their places of residence, pursuant to a community shelter planning (CSP) allocation and the related nuclear emergency operations plan based on the allocation. (2) Ability to relocate people, should time and circumstances permit during an intense international crisis, either selectively, from high -risk areas near U.S. strategic offensive forces; or from all high -risk areas, including larger cities as well as areas near key military installations. Planning for the contingency of crisis relocation includes provision for protecting relocated people from fallout, based upon Host Area surveys of fallout protection. NCP planning thus requires a balance between effort devoted to in- place protection and crisis relocation. Due to the effort devoted to community shelter planning since 1966, it is anticipated that the bulk of NCP and supporting survey effort for the next several years will be devoted to development of crisis relocation capabilities, to achieve a balanced, two - option capability. However, plans for the option of crisis relocation will complement, not replace, plans to protect the population in- place. Accordingly, maintenance and updating of CSP allocations and of the related emergency operations plans based upon such allocations remains essential. Developing Nuclear Civil Protection contingency plans and capabilities will require coordinated effort by State and local P &A- supported personnel and by planners working under fully Federally funded NCP contracts with the States. Work by the NCP planners will concentrate on (1) development of alloca- tions and State -level operational plans for the crisis relocation option; (2) development of detailed local allocations of risk area populations to appropriate host areas (including development of standby information materials for the public, for crisis publication should relocation plans be implemented); and (3) providing advice on local operational planning for host and risk areas, for the crisis relocation option. NCP planners will also assist in updating CSP allocations for in -place protection of the population, and standby emer- gency public information materials based on thse allocations. State and local P &A- supported personnel will be expected to devote a major proportion of their effort to the development, updating, and exercising of opera tional plans for the two NCP options. Where planning for the crisis relocation option has not been commenced, P &A- supported personnel would thus concentrate on improving operational plans for protecting the population in- place, under CSP allocations. Such nuclear emergency plans include elements as outlined in the "Standards for Local Civil Preparedness ". These include basic operating capabilities (a Basic Plan plus annexes on EOC organization and procedures, Attack Warning, Emergency Communications, Emergency Public Information, and Radiological Defense) as well as plans for sheltering the 4 population and supporting them in shelters (including annexes covering operations by local police, fire, engineering, medical and other forces for NCP in- place protection operations). It is essential that plans for protecting the population in -place include provision for crisis - period marking and stocking shelter facilities which are planned for use but are not marked or stocked. Where planning for the crisis relocation option has been started by planners working under NCP contracts. State and local P&A- supported personnel will work on local operational plans for crisis relocation, for both risk and host -area jurisdictions. P&A- supported personnel will also be responsible for developing capa- bilities and systems required for Nuclear Civil Protection operations (e.g., EOC facilities and equipment, Attack Warning systems, Emergency Public Information, Radiological Defense, and emergency communications essential to the foregoing. During FY 1977, planning for the contingency of crisis relocation will continue in States where it was started in FY 1976, and will be commenced in additional States, supported by Host -Area shelter surveys. DCPA will provide additional guidance for FY 1977 NCP planning, but in general the effort nationwide will aim at developing an early initial capability for the contingency of crisis relocation, with supporting detailed operational plans to be developed thereafter. Special support will be provided by DCPA for development of contingency plans for crisis relocation in the most densely urbanized parts of the U.S. (such as the Northeast Urban Corridor and California). Supporting Programs Under the reoriented civil defense program, DCPA will provide assistance as follows for developing systems and capabilities required for nuclear disaster preparedness: Attack Warning -- DCPA will continue to provide the National Warning System (NAWAS), to disseminate attack warning to State and local govern- ments and for the public. At the State level, DCPA will continue to provide matching funds (1) to develop State warning systems whereby attack warning information can be effectively disseminated to State agencies, local governments, and through the mass media to the public; and (2) for recurring and maintenance costs for State warning systems. At the local level, DCPA will continue to provide matching funds for procurement of outdoor public warning devices and systems, and for recurring and maintenance charges, only for local jurisdictions deemed to face high risk of direct weapons effects in case of nuclear attack upon the United States. (See DCPA publication TR -82, "High Risk Areas," for designation of areas deemed to face potential high risk from direct weapons effects.) 5 In low -risk areas, DCPA support for warning will be limited to planning advice and to matching funds only for communications essential to effective use of existing media for attack warning. (Example: A communica- tions link between an existing local EOC and broadcast stations serving the area, if such a link is essential for attack warning dissemination.) Emergency Operating Centers -- Matching funds for State and local EOC's will be substantially reduced from the FY 1976 level. More detailed guidance will be provided, but in general, available matching funds will be used for extending EOC coverage at the State and State -area level and for extending local EOC coverage on a limited basis in areas of high risk from direct weapons effects and in nearby low -risk areas. The overall intent is that the limited funds available be used for development of EOC's at the State, State -Area, and local levels from which operations can be directed for support of survivors in high -risk areas should they suffer direct weapons effects. To implement this intent, the following general priorities will be observed in use of funds for EOC construc- tion: (1) State EOC's; (2) State -Area EOC's providing direction and control for a high -risk area and part or all of its associated host area; (3) fallout - protected local EOC's near high -risk areas, from which operations can be directed for support of survivors in the high -risk area; and (4) local EOC's in high -risk areas, which provide some degree of blast protection. Any EOC matching funds available after meeting the foregoing needs will be applied to equipping EOC's constructed with FY 1976 or prior - year funds, with funds to be applied in the same priority order. If any funds remain available, they may be applied to construc- tion of EOC's in areas not specified above (e.g., fallout - protected EOC's in host -area jurisdictions not near high -risk areas.) DCPA will continue to provide technical advice and assistance to all jurisdictions, on EOC construction and on modification of existing structures to provide suitable fallout protection for an EOC. Emergency Communications -- Matching funds for communications will, in general, be limited to the following systems as required for nuclear disaster emergencies: (1) State Direction and Control communications between State EOC's, State -Area EOC's, major State agencies, and local EOC's; and (2) local Direction and Control communications between EOC's and major emergency services. No funds will be provided for mobile radios or for mobile communication vans. (The availability of matching funds for com- munications links essential for attack warning functions was noted under "Attack Warning. ") Radiological Defense -- DCPA will continue to emphasize the develop- ment of a radiological emergency response capability which is ready at all 6 times for attack and peacetime nuclear emergencies and which can, if time permits, be expanded during a period of international crisis. Contract support will be continued for the maintenance and calibration of radiological instruments. Contracts will also provide for Radef training, and it will be required that all training funded under such contracts be conducted by professionals fully qualified in Radef training. Training will stress training of Radioligical Defense Officers required at local and State level, as a qualified RDO is essential for planning for and developing a radiological emergency response capability. Training activities under the contracts will also include managing the home study radiological monitoring training course, completing the practical application follow -up for operationally ready monitors, and training Aerial Radiological Monitors. Jurisdictions in the environs of licensed nuclear facilities such as power plants should develop, with State and Federal support, an emergency response capability for accidents involving the release of radioactivity to the environment. This should provide for warning, evacuation, shelter, and related operations as well as monitoring and reporting radiation levels. Surplus and Excess Property -- Grants of surplus property will be limited to equipment essential for attack warning, emergency communications, Emergency Operating Centers, and civil defense administrative offices. Detailed guidance will be provided, but items which will continue to be authorized for donation will include communications and attack warning equipment, generators, office supplies and equipment, and food preparation equipment. Effective June 30, 1976, loan of property under the Contributions Loan Program will be limited to the same purposes noted above for surplus property. Loans will be limited to items in the following categories having a loan acquisition value of $300 or more: Communications equipment, generators, warning equipment, and major items of food preparation and office equipment. The policy on aircraft loans remains the same as in FY 1976. Current equipment loans to State and local governments may continue, provided the equipment continues to be needed for the purpose for which it was acquired, pending final action on legislation now pending before Congress, and decision based on such legislative action. Neither surplus property nor items obtained under the Contributions Loan Program may be transferred by civil defense agencies to other elements of State or local government, by custody receipt or otherwise. No DCPA matching funds will be authorized for transportation, rehabilitation, modification, or installation of surplus or excess property obtained after June 30, 1976. 7 Emergency Water Supply Equipment -- It has been determined that this equipment has only slight potential utility in nuclear disasters, and effective approximately June 30, 1976, DCPA will no longer make the equipment available for use in peacetime emergencies. It will be disposed of in an appropriate manner, yet to be determined. Training -- The conduct of State seminars for local civil defense personnel will be continued and expanded, and such seminars will be the primary means for training local CD personnel in nuclear disaster preparedness, and in program administration. Use of the DCPA "Attack Environment Manual" will be stressed, and professionally- qualified training personnel will be required in the conduct of training seminars. Radiological defense training will be continued as noted pre- viously, and reliance will also be placed upon crisis training to meet deficiencies of Radiological Monitors, Shelter Managers, and other personnel required for nuclear disaster operations. DCPA will develop and make available to the States materials for such crisis training. Additional materials will be developed by DCPA for use during a crisis period to educate the public on nuclear hazards and protective action. On -Site Assistance -- On -Site Assistance, by teams of State (P &A) and Regional professionals, will remain the primary means for reviewing, analyzing, and assisting in the improvement of operational readiness in local jurisdictions, OSA projects will be conducted in conjunction with Nuclear Civil Protection planning, to the maximum extent permitted by available manpower. Local OSA projects in host and risk jurisdictions will thus be used as a primary vehicle to assure development of balanced emergency capabilities needed to conduct nuclear disaster operations, for both the in -place protection and crisis relocation options. This includes development of EOC facilities, staffing, and procedures; capabilities and systems for Attack Warning, Radiological Defense, and Emergency Public Information, including necessary communications; and emergency plans covering use of the foregoing capabilities in nuclear disasters and of other forces and capa- bilities essential for nuclear disaster operations. Participation in local OSA projects will be a major part of the workload of State P&A- supported personnel. OSA projects will stress provision of assistance in development of capabilities and systems required for NCP operations and in emergency planning for use of such systems in nuclear disasters. As much assistance as possible will be provided during and immediately following the survey phase of OSA, and additional follow -up assistance will be provided as outlined in OSA Action Plans. 8 III. Programming Approach The DCPA programming system is in full operation, and with slight modification will be used as the basic management tool for FY 1977 programming and allocation of resources. The Program Status Report provides data on status in program areas. DCPA Regional personnel will work with each State to develop realistic program objectives, as well as agreed priorities for providing On -Site Assistance, training seminars, and other Federal /State manpower and assistance to local jurisdictions, in light of the reoriented approach outlined in Section II above. States will then be able to plan the most effective use of Federal and State support; tell local governments what assistance will be available to them; and help local governments develop a program for the next fiscal year which takes advantage of available support to improve readiness. States should relate the efforts of the State P &A staff, and of the Federally- supported NCP planning and RADEF staffs, to the needs of localities scheduled to receive On -Site Assistance. Support needed by other communities in the State also should be scheduled as necessary. Local Directors should use the annual program paper as their basic management tool, to set realistic readiness goals to be reached during Fiscal Year 1977. Where the community has received On -Site Assistance, the program paper should reflect that part of the Action Plan scheduled for completion during the fiscal year. Other communities should use the Standards as a basis for developing their own Action Plans, and reflect this in their program paper. The local Program Paper form to be used for FY 1977 includes, as an integral part, an "Evaluation of Program Elements." This space is used to reflect an evaluation of local readiness made as outlined in the Program Evaluation Handbook (CPG 1 -5A), which is based on the Standards. The evaluation should be used as a basis for determining which elements of local readiness should be improved to at least the "minimum level" standard (and desirably the "fully - qualified" standard). Guidance on scheduling FY 1977 programming activities will be supplied separately. It is essential that in FY 1977 programming activities, information be secured on all valide anticipated requirements for matching funds and other DCPA support in FY 1977 and F Y 1978, even if it appears that only part of such requirements can be met under guidelines in Section II above and the anticipated FY 1977 budget. This data is essential on such anticipated requirements (for which States or localities expect to have funds available) as matching funds for constructing and equipping EOC's in all jurisdictions, matching funds for attack warning and communications systems, in all juris- dictions, and matching funds for State and local P &A expenses. Data is also 9 essential on DCPA- supported training requirements in support of Nuclear Civil Protection preparedness. The foregoing data is required as a basis for programming for FY 1978 and future years, and for other purposes. 1V. Expiration This paper applies to all FY 1977 programming, and thus expires September 30, 1977.