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H A Z A R D O U S M A T E R I A L S C O O P E R A T I V E R E S E A R C H P R O G R A M HMCRP REPORT 9 A Compendium of Best Practices and Lessons Learned for Improving Local Community Recovery from Disastrous Hazardous Materials Transportation Incidents Richard A. Ranous ABS ConSulting Arlington, VA Subscriber Categories Freight Transportation ⢠Planning and Forecasting ⢠Security and Emergencies TRANSPORTAT ION RESEARCH BOARD WASHINGTON, D.C. 2012 www.TRB.org Research sponsored by the Pipeline and Hazardous Materials Safety Administration
HAZARDOUS MATERIALS COOPERATIVE RESEARCH PROGRAM The safety, security, and environmental concerns associated with transportation of hazardous materials are growing in number and complexity. Hazardous materials are substances that are flammable, explosive, or toxic or that, if released, produce effects that would threaten human safety, health, the environment, or property. Hazardous materials are moved throughout the country by all modes of freight transportation, including ships, trucks, trains, airplanes, and pipelines. The private sector and a diverse mix of government agencies at all levels are responsible for controlling the transport of hazardous materials and for ensuring that hazardous cargoes move without incident. This shared goal has spurred the creation of several venues for organizations with related interests to work together in preventing and responding to hazardous materials incidents. The freight transportation and chemical industries; government regulatory and enforcement agencies at the federal and state levels; and local emergency planners and responders routinely share information, resources, and expertise. Nevertheless, there has been a long- standing gap in the system for conducting hazardous materials safety and security research. Industry organizations and government agencies have their own research programs to support their mission needs. Collaborative research to address shared problems takes place occasionally, but mostly occurs on an ad hoc basis. Acknowledging this gap in 2004, the U.S. DOT Office of Hazardous Materials Safety, the Federal Motor Carrier Safety Administration, the Federal Railroad Administration, and the U.S. Coast Guard pooled their resources for a study. Under the auspices of the Transportation Research Board (TRB), the National Research Council of the National Academies appointed a committee to examine the feasibility of creating a cooperative research program for hazardous materials transportation, similar in concept to the National Cooperative Highway Research Program (NCHRP) and the Transit Cooperative Research Program (TCRP). The committee concluded, in TRB Special Report 283: Cooperative Research for Hazardous Materials Transportation: Defining the Need, Converging on Solutions, that the need for cooperative research in this field is significant and growing, and the committee recommended establishing an ongoing program of cooperative research. In 2005, based in part on the findings of that report, the Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU) authorized the Pipeline and Hazardous Materials Safety Administration (PHMSA) to contract with the National Academy of Sciences to conduct the Hazardous Materials Cooperative Research Program (HMCRP). The HMCRP is intended to complement other U.S. DOT research programs as a stakeholder-driven, problem-solving program, researching real-world, day-to-day operational issues with near- to mid- term time frames. Published reports of the HAZARDOUS MATERIALS COOPERATIVE RESEARCH PROGRAM are available from: Transportation Research Board Business Office 500 Fifth Street, NW Washington, DC 20001 and can be ordered through the Internet at: http://www.national-academies.org/trb/bookstore Printed in the United States of America HMCRP REPORT 9 Project HM-11 ISSN 2150-4849 ISBN: 978-0-309-25876-0 Library of Congress Control Number 2012954362 © 2012 National Academy of Sciences. All rights reserved. COPYRIGHT INFORMATION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA, FMCSA, FTA, RITA, or PHMSA endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not- for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. NOTICE The project that is the subject of this report was a part of the Hazardous Materials Cooperative Research Program, conducted by the Transportation Research Board with the approval of the Governing Board of the National Research Council. The members of the technical panel selected to monitor this project and to review this report were chosen for their special competencies and with regard for appropriate balance. The report was reviewed by the technical panel and accepted for publication according to procedures established and overseen by the Transportation Research Board and approved by the Governing Board of the National Research Council. The opinions and conclusions expressed or implied in this report are those of the researchers who performed the research and are not necessarily those of the Transportation Research Board, the National Research Council, or the program sponsors. The Transportation Research Board of the National Academies, the National Research Council, and the sponsors of the Hazardous Materials Cooperative Research Program do not endorse products or manufacturers. Trade or manufacturersâ names appear herein solely because they are considered essential to the object of the report.
The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. On the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences. The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering. The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, on its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine. The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academyâs purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council. The Transportation Research Board is one of six major divisions of the National Research Council. The mission of the Transporta- tion Research Board is to provide leadership in transportation innovation and progress through research and information exchange, conducted within a setting that is objective, interdisciplinary, and multimodal. The Boardâs varied activities annually engage about 7,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individu- als interested in the development of transportation. www.TRB.org www.national-academies.org
C O O P E R A T I V E R E S E A R C H P R O G R A M S AUTHOR ACKNOWLEDGMENTS The research reported herein was performed under HMCRP Project 11 by ABSG Consulting Inc. (ABS Consulting), Arlington, Virginia. Richard A. Ranous, ABS Consulting, was the Project Manager and Principal Investigator. The other authors of this report are Audra G. Kunf, CEM, ABS Consulting, Subject Matter Expert; Frances Kernodle, Frances Kernodle Associates, Inc., Subject Matter Expert; Mark Lepofsky, Visual Risk Technologies, Subject Matter Expert; Katrina Kernodle-Walsh, ABS Consulting, Lead Research Analyst; and Kerry L. Thomas, Senior Director, Homeland Security Support Programs, ABS Consulting, Corporate Representative. CRP STAFF FOR HMCRP REPORT 9 Christopher W. Jenks, Director, Cooperative Research Programs Crawford F. Jencks, Deputy Director, Cooperative Research Programs William C. Rogers, Senior Program Officer Charlotte Thomas, Senior Program Assistant Eileen P. Delaney, Director of Publications Hilary Freer, Senior Editor HMCRP PROJECT HM-11 PANEL Field of Hazardous Materials William R. Rhyne, Kingston, TN (Chair) John A. Bergendahl, Worcester Polytechnic Institute, Worcester, MA David H. Bierling, Texas A&M University, College Station, TX Judith A. Holm, Lutherville, MD Austin Marshall, University of Texas - El Paso, El Paso, TX Eileen M. Phifer, Michigan DOT, Lansing, MI Thomas Richardson, Seattle Fire Department, Conway, WA Scott L. Turner, SL Turner Consulting, Blairstown, NJ William E. Van Trump, Carter Lake, IA James Simmons, PHMSA Liaison Richard A. Cunard, TRB Liaison
By William C. Rogers Staff Officer Transportation Research Board HMCRP Report 9: A Compendium of Best Practices and Lessons Learned for Improving Local Community Recovery from Disastrous Hazardous Materials Transportation Incidents describes initiatives that can assist local communities in developing or improving their recovery plan- ning and operations in response to hazardous materials transportation incidents. Recovery is defined as both short- and long-term efforts to rebuild and revitalize affected communities. Recovery planning should provide for a near-seamless transition from emergency response activities to recovery operations to de-briefing lessons learned and should include, but not be limited to, restoration of interrupted utility service, re-establishment of transportation routes, the provision of food and shelter to displaced persons, environmental restoration, business continuity, and economic rebuilding. Federal health, safety, and environmental regulations address emergency response plan- ning and preparations in the event of a hazardous materials release. However, little prog- ress has been made to document actions and plans that address recovery from disastrous hazardous materials transportation incidents, particularly incidents that result in human casualties, extensive property or environmental damage, or severe social or economic dis- ruptions. Recent examples of such disasters include the New Orleans, LA, barge spill in 2008; the derailment of chlorine tank cars in Graniteville, SC, in 2005; and the Baltimore, MD, tunnel fire in 2001. Under HMCRP Project 11, ABSG Consulting, Inc., was asked to develop a compendium of best practices that can be used by local communities to plan for recovery from disastrous hazardous materials transportation incidents. To do so, the researchers (1) analyzed perti- nent domestic and international examples (including review of after-action reports, lessons learned or observed, and best practices) from current practice, research findings, and other resources on disaster recovery; (2) identified procurement procedures, legal and environ- mental compliance requirements, and materials, labor, equipment, and expertise necessary to enable recovery; (3) on the basis of applicability and usefulness, identified best practices that could enhance local community planning for and recovery from disastrous hazardous materials transportation incidents; (4) identified institutional barriers to adopting the best practices and feasible solutions for overcoming them; (5) developed a detailed compendium of best practices; and (6) performed a gap analysis to compare recovery planning needs with the current state of the practice and proposed initiatives to address the gaps. The output of the research is a compendium of best practices, lessons learned, and proposed initiatives structured to assist local communities in developing or improving their recovery planning and operations as these relate to disastrous hazardous materials transportation incidents. F O R E W O R D
1 Summary 2 Chapter 1 Introduction 2 1.1 Document Flow 3 1.2 Guiding Principles 5 1.3 Understanding the Movement of Hazardous Materials 9 1.4 Other Considerations 12 Chapter 2 Roles and Responsibilities in Recovery 12 2.1 Overview 13 2.2 Federal Roles and Responsibilities in Hazardous Materials Incidents 13 2.3 Federal Statutory Authorities 24 Chapter 3 Resources Available to Support Community Recovery 24 3.1 Overview 24 3.2 Financial Assistance for Recovery 29 3.3 Other Resources Available to Support Recovery Efforts 39 Chapter 4 Best Practices for Community Recovery Planning 39 4.1 Overview 40 4.2 Standards for Recovery Planning 41 4.3 Samples of Recovery Planning 44 4.4 Recovery Planning Activities 49 4.5 Recovery Planning for Mass Care 56 4.6 Recovery Planning for Infrastructure 60 4.7 Recovery Planning for the Environment 62 4.8 Recovery Planning for the Economy 67 4.9 Mitigating Risk through Planning Activities 71 4.10 Summary of Case Studies 73 Chapter 5 Best Practices for Community Recovery Operations 73 5.1 Overview 74 5.2 Recovery Operations for Mass Care 85 5.3 Operations for Infrastructure Recovery 95 5.4 Operations for Environmental Recovery 101 5.5 Operations for Economic Recovery 108 5.6 Summary of Case Studies 111 Chapter 6 Best Practices for Community Public Information Efforts 111 6.1 Overview 111 6.2 Pre-Incident Planning of Public Information Operations C O N T E N T S
112 6.3 Public Information Operations during Recovery Operations 115 6.4 Summary of Case Studies 117 Chapter 7 Gap Analysis 117 7.1 Overview 117 7.2 Restitution and Funding Guidelines 118 7.3 Planning and Source Documentation 120 7.4 Long-Term Consequences, Decontamination, and Cleanup of Hazardous Materials 122 7.5 Evacuation and Victim Tracking 123 7.6 Public Information 124 7.7 Summary of Identified Gaps 127 Chapter 8 Future Initiatives 127 8.1 Potential Additional Work Related to Hazardous Materials Transportation Incidents 127 8.2 Training and Exercises 128 8.3 Methods of Distributing the Report(s) 129 References A-1 Appendix A Acronyms B-1 Appendix B Reference Documents C-1 Appendix C Sample Recovery Plans D-1 Appendix D Sample Decontamination Plan E-1 Appendix E Available Grant Programs F-1 Appendix F Summary of Lessons Learned, Best Practices, and Gaps Note: Many of the photographs, figures, and tables in this report have been converted from color to grayscale for printing. The electronic version of the report (posted on the Web at www.trb.org) retains the color versions.
