Revision 1
9223.0-1A
CHEMICAL EMERGENCY PREPAREDNESS PROGRAM
INTERIM GUIDANCE
by
U.S. Environmental Protection Agency
U.P
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UNITED STATES ENVIRONMENTAL PROTECTION AGENCY
WASHINGTON, D.C. 20460
THE ADMINISTRATOR
In June of this year/ EPA announced a comprehensive
strategy to deal with the problem of air toxics in the
environment. One section of this strategy was designed to
address accidental releases of acutely toxic chemicals.
This voluntary program has two goals: to increase community
awareness of chemical hazards and to develop State and local
emergency response plans for dealing with chemical accidents.
Attached is EPA's guidance to achieve those goals, the criteria
used to identify chemicals of concern, and a list of chemicals
that meet those criteria.
This is an interim document. Some portions of this
guidance have received extensive review by parties outside of
EPA including some States; for other portions, such as the
criteria and list of chemicals, there has been less opportunity
for comment. In order to assure that all elements of the
program are available to all interested parties for review
and comment, we are issuing it as interim guidance. We are
publishing a Federal Register notice reguesting comment on
the program.
This guidance has been developed with the cooperation of
many Federal agencies, including the Federal Emergency Management
Agency and the Department of Transportation. In addition, we
have worked with other groups, including the American Red Cross,
the National Emergency Management Association, and the Chemical
Manufacturers Association.
Even though this program is interim, EPA stands ready to
provide technical assistance and training in program implementation.
FEMA will provide training and assistance in the development of
all hazards capabilities that include Chemical Emergency
Preparedness Program needs.
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PREFACE
This guidance is intended to help local communities become aware of any
acutely toxic chemicals in their area and prepare to respond to any accidental
release of such chemicals into the air. Some communities already have
response contingency plans; these plans may need to be modified for the case
of acutely toxic chemical releases. Other communities may discover that they
need to develop a new response contingency plan. This guidance, used in
conjunction with FEMA's Planning Guide and Checklist for Hazardous Materials
Contingency Plans, will assist communities to adapt existing plans as well as
develop a new plan.
The Environmental Protection Agency is publishing here the criteria for
identifying acutely toxic chemicals. There is also a list of chemicals which
meet EPA's criteria. These are not the only chemicals that could be dangerous
to a community, but local communities should give priority to acutely toxic
chemicals as they prepare to respond to possible accidental releases.
The goal of the Chemical Emergency Preparedness Program is to assure that
communities are prepared to deal effectively with possible accidental releases
of acutely toxic chemicals. Developing community awareness and contingency
planning are essential parts of the process of becoming prepared.
There are three stages in developing community awareness and
preparedness. The first stage involves identifying a leader and naming a work
group that is representative of various segments of the community. This work
group will be responsible for learning what acutely toxic chemicals are
present in the community and how well prepared the community already is for
responding to a possible accident. Gathering and analyzing this site-specific
information is the second stage in developing community preparedness and
response capability. The third stage is preparing or adapting a response
contingency plan. This guidance suggests the various elements which should be
part of such a contingency plan.
This guidance does not provide a simple recipe that local communities can
use to write a contingency plan quickly and for all time. Rather, communities
that use this guidance should be able to develop the ability continually to be
aware of any acutely toxic chemicals in their midst and to be prepared to
respond to accidental releases of those chemicals.
Portions of this guidance document have received extensive review by
parties outside EPA. In order to assure that all portions of the document are
available to all interested parties for review and comment, EPA is publishing
this as interim guidance. There may be some States and communities who
wish to make immediate use of this interim guidance to begin the process of
preparedness and contingency planning for the accidental release of these
chemicals into the air. Technical assistance and training in contingency
planning and use of the criteria and list will also be available to the states
from Federal agencies.
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Comments on the contents of the Chemical Emergency Preparedness Program
Interim Guidance will be accepted through March 17, 1986. Comments must be
written and should reference docket control number OPTS-00066. An original
and two copies should be sent to:
TSCA Public Information Office (TS-793)
Office of Toxic Substances
Environmental Protection Agency
Room E-108
401 M Street, S.W.
Washington, B.C. 20460
There is a postcard on the back cover of the guidance document which you
may submit to receive a copy of the profiles discussed in the guidance.
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TABLE OF CONTENTS
Page
PREFACE ii
CHAPTER 1: INTRODUCTION 1-1
1.1 Background 1-1
1.2 Purposes of this Guidance 1-1
1.3 Related Programs and Materials 1-2
1.4 Cooperation in Planning 1-3
1.5 Structure of this Guidance 1-4
CHAPTER 2: ORGANIZING THE COMMUNITY 2-1
2.1 General Considerations 2-1
2.1.1 Including Interested Parties 2-1
2.1.2 Special Role of Local Government 2-2
2.1.3 Relationship with State and Regional Planning
Efforts 2-2
2.1.4 General Recommendations 2-3
2.2 Organizing the Community -- The Specific Steps 2-3
2.2.1 Taking Stock of Related Preparedness Efforts
and Organizations 2-4
2.2.2 Selecting a Leader 2-5
2.2.3 Forming a Work Group 2-6
2.2.4 Assigning Responsibility for Specific Preparedness
Planning Tasks 2-8
2.2.5 Establishing Procedures for Monitoring and
Approving the Planning Tasks 2-10
2.2.6 Establishing Procedures and Assigning Responsi-
bility for Validating and Implementing the
Approved Contingency Plans 2-11
CHAPTER 3: GATHERING AND ANALYZING SITE-SPECIFIC INFORMATION 3-1
3.1 Purpose 3-1
3.2 Organization and Use of the Guidance 3-2
3.3 Guidance 3-5
3.4 Summary and Next Steps 3-14
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TABLE OF CONTENTS (continued)
CHAPTER 4:
4.1
4.2
4.3
4.4
4.5
CHAPTER 5:
5.1
5.2
CHAPTER 6:
6.1
6.2
6.3
6.4
APPENDIX A:
APPENDIX B:
APPENDIX C:
APPENDIX D:
D.I
D.2
D.3
D.4
APPENDIX E:
APPENDIX F:
CONTINGENCY PLAN DEVELOPMENT AND CONTENT
Introduction
Sample Outline of a Contingency Plan
General Observations About the Sample Outline
Hints for Writing a Plan
Extended Comments on the Sample Outline of a
Contingency Plan
CONTINGENCY PLAN APPRAISAL AND CONTINUING PLANNING
Plan Appraisal
Keeping the Plan Up-to-Date
THE CRITERIA
Introduction
Approach to Identifying Acutely Toxic Chemicals
Criteria
Application of Criteria to Identify and List Acutely
Toxic Chemicals
ACUTELY TOXIC CHEMICALS (Sample Profile and List)
GLOSSARY
ACRONYMS
QUANTITY DETERMINATION METHOD
Background
Methodology
Using the Graph
Next Steps
SELECTED BIBLIOGRAPHY
SUMMARY OF U.S. DEPARTMENT OF TRANSPORTATION
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4-3
4-4
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6-4
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D-5
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CONTINGENCY PLANNING DEMONSTRATIONS
APPENDIX G:
REGIONAL CONTACTS FOR THE CHEMICAL EMERGENCY
PREPAREDNESS PROGRAM
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1. INTRODUCTION
1.1 BACKGROUND
The tragedy in Bhopal, India, has made people in the United States aware
of the possibility of serious chemical accidents and the need for local
communities to have in place an effective program to deal with chemicals that
can cause death or serious injury if an accidental release occurs. On June 4,
1985, the Administrator of the U.S. Environmental Protection Agency (EPA)
announced a two-part National Strategy for Toxic Air Pollutants, one part of
which was to provide the public and State and local officials with information
to assist them in planning to respond to accidental releases of acutely toxic
chemicals. EPA has already established the second, and larger, part of this
strategy under Section 112 of the Clean Air Act, designed to deal with routine
releases of hazardous air pollutants.
EPA has developed criteria to identify acutely toxic chemicals, and a list
of such chemicals. These acutely toxic chemicals can cause death or injury in
the event of an accidental release into the air. The extent of harm will
depend on the chemical involved, its physical state, how it is handled at the
site,1 the amount released, the prevailing weather conditions at the time of
the release, the population potentially affected, the emergency preparedness
measures in place in the community, and the actual response actions taken.
Major accidents involving releases of acutely toxic chemicals are
infrequent; those that cause fatalities and serious injury to the general
public are very infrequent. A community should not be unduly alarmed if it
finds, within its boundaries, chemicals which meet the criteria. Rather, a
community should view this information as a way to identify and rank potential
risks and to review, improve, and build upon existing contingency plans to
address the potential risks in a way that is realistic and meaningful for the
community.
The focus of the selection criteria, the accompanying list of acutely
toxic chemicals, and this guidance is on helping communities prepare to
respond to serious chemical accidents, not on all chemically related dangers.
Nevertheless, EPA urges local communities to develop overall contingency plans
for response to any emergency. If a community discovers that it has a
relatively low potential for a catastrophic accident, that community should
still address the possibility of less severe accidents.
1.2 PURPOSES OF THIS GUIDANCE
EPA is publishing this guidance to accompany its criteria and list. The
purposes of this set of materials are to:
1For purposes of this guidance, "site" or "facility" means any location
where acutely toxic chemicals are manufactured, processed, stored, handled,
used, or disposed; in short, any place where these chemicals may be found.
Communities should be aware that chemicals are frequently found at places
other than industrial sites.
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Serve as a catalyst for bringing people in a community
together to focus on emergency response and preparedness;
Provide communities with information useful to them in
getting organized to carry out the task;
Provide the methods for gathering data as a tool for
analyzing the extent of the problem in the local area;
Encourage facilities to make public certain
information about hazardous substances they manufacture,
process, store, handle, use, or transport; and
Provide information on the development of contingency
plans for communities without such a plan and serve as a
method of reviewing existing plans in other communities.
This guidance is meant to enhance community preparedness and response
capability. The development of community awareness and a contingency plan are
only means to achieving these ends. Communities should recognize that
developing community awareness and a contingency plan are part of the process
of becoming better prepared to respond to an incident.
This guidance is only for that part of EPA's National Strategy for Toxic
Air Pollutants that addresses the accidental release of acutely toxic
chemicals. The design and intended use of this material distinguish it from
EPA's regulatory activities for toxic air pollutants under Section 112 of the
Clean Air Act. In particular, the substances on the acutely toxic chemicals
list meet specific toxicity criteria only, while regulatory decisions under
Section 112 consider both toxicity and exposure criteria. Further, actions
taken under Section 112 consider a broader range of toxicity criteria;
specifically, long-term health effects such as cancer. These differences in
design and intent between the list presented here and the list of chemicals
regulated under Section 112 mean that substances appearing on one list will
not necessarily appear on the other list, although some overlap between the
two lists is to be expected.
1.3 RELATED PROGRAMS AND MATERIALS
For many years, a number of Federal agencies have engaged in activities
intended to reduce the risks associated with hazardous materials. These
activities include, among others, major programs conducted by the Department
of Transportation (DOT), the United States Coast Guard, the Occupational
Safety and Health Administration (OSHA), the Federal Emergency Management
Agency (FEMA), and the Nuclear Regularly Commission. Many related
responsibilities are borne by EPA, through its mandates under the
Comprehensive Environmental Response, Compensation, and Liability Act of 1980
(CERCLA or "Superfund"), the Resource Conservation and Recovery Act (RCRA),
the Toxic Substances Control Act (TSCA), the Clean Air Act, and the Clean
Water Act, which are concerned with hazardous substances, hazardous wastes,
toxic substances, air pollution, and water pollution, respectively.
Additionally, the National Oil and Hazardous Substances Contingency Plan (NCP)
provides organizational guidance for Federal responses to hazardous material
releases (see 40 CFR Part 300), designating Federal On-Scene Coordinators
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(OSCs) from EPA, the U.S. Coast Guard, and the Department of Defense,
depending on the location of the incident. Thus, the National Strategy for
Toxic Air Pollutants represents only one part of a long and comprehensive
effort by EPA and other Federal agencies to improve the environmental safety
of the nation.
Many communities already have contingency plans. Existing plans can be
amended to include the particular case of acutely toxic chemicals. This
guidance can help a community identify what must be added to its comprehensive
contingency plan to make it more complete. Communities that have several
facilities may discover that separate contingency plans already exist at each
site. In such cases, planners should work to integrate these individual plans
so that any necessary response will be coordinated and orderly.
The language and format of Chapters 4 and 5 of this guidance have been
deliberately chosen to correspond with the language and format of Planning
Guide and Checklist for Hazardous Materials Contingency Plans (Washington,
D.C.: Federal Emergency Management Agency and U.S. Environmental Protection
Agency, 1981). Popularly known as FEMA-10, this guide is now under joint
revision by FEMA and EPA. The revised document will include materials
contained here and will ultimately replace Chapters 4 and 5 of this guidance,
which are being issued on an interim basis. Planners using this guidance
should also consult FEMA-10 for additional assistance in contingency planning.
EPA is developing training programs to complement this Chemical Emergency
Preparedness Program Guidance. Communities seeking help in developing
preparedness and response programs should consult appropriate State agencies.
States may consult with EPA Regional offices for additional EPA training and
assistance (see Appendix G).
The U.S. Department of Transportation (DOT) has addressed contingency
planning for transportation accidents. Appendix E includes a brief
description of DOT's Community Teamwork: Working Together to Promote
Hazardous Materials Transportation Safety. Communities which face severe
budget constraints will benefit from the many cost-saving suggestions found in
DOT's Community Teamwork volume.
DOT has also sponsored a number of demonstration projects for hazardous
materials transportation contingency planning. A summary of the experiences
and lessons learned from these demonstration projects can be found in
Appendix F.
1.4 COOPERATION IN PLANNING
This guidance emphasizes that planning is a community project. Successful
planning will require the cooperation of all interested parties. In some
cases, the planning process will cross jurisdictional lines into other cities
and counties. Everyone involved must cooperate in order to facilitate the
planning process and to ensure effective response at the time of an
emergency. Cooperation is a key factor in the process of improving a
community's preparedness and response capabilities.
Special attention should be given to cooperation with the chemical
industry and other handlers of acutely toxic chemicals. Whenever "community"
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is referred to in this document, it is presumed that local facilities are an
integral part of that community. Site representatives should be part of the
planning process. In fact, much of the needed information for planning, as
well as resources for emergency response, will be found in local facilities,
1.5 STRUCTURE OF THIS GUIDANCE
Chapter 2 provides recommendations on how communities can organize to
develop community awareness and contingency planning programs to address the
risks associated with acutely toxic chemicals. Chapter 3 provides general
guidelines on gathering information from local facilities and government to
determine whether there are acutely toxic chemicals in the community, whether
they pose potentially significant risks to public health and safety, what
measures facilities have taken to control releases, and the emergency response
resources and capabilities available both at facilities and in the community.
Chapter 4 provides guidance on ways to use the information gathered to
develop community contingency plans which specifically address releases
into the air of acutely toxic chemicals. Chapter 5 is a brief description of
methods for evaluating and regularly updating a contingency plan. Chapter
6 describes the criteria used for determining what substances are
classified as acutely toxic chemicals.
There are seven appendices to this guidance. Appendix A is the list of
acutely toxic chemicals. Appendix B contains definitions of technical terms
relating to acutely toxic chemicals. Appendix C explains the acronyms that
appear in the text. Appendix D describes the "Quantity Determination Method"
that will help a community assess the potential hazard posed by acutely toxic
chemicals within its boundaries. A selected bibliography is provided in
Appendix E. Appendix F contains a summary of the lessons learned from DOT's
demonstration projects for transportation safety contingency planning.
Finally, Appendix G lists EPA's regional offices and preparedness contacts for
the Chemical Emergency Preparedness Program.
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2. ORGANIZING THE COMMUNITY
2.1 GENERAL CONSIDERATIONS
In organizing a community to develop an awareness and preparedness
program, it is useful to discuss some general considerations concerning the
various parties in the community directly concerned with the hazards posed by
acutely toxic chemicals, the role of local government in addressing such
hazards, and the relationship with preparedness planning at the regional and
State levels. This discussion leads to several general conclusions and
recommendations concerning the basics of organizing.
2.1.1 Including Interested Parties
When acutely toxic chemicals are present in an area, there are many
individuals with the common goal of assuring that adequate resources and plans
are in place to respond to accidental releases. These individuals include,
among others:
People living or working near facilities and
transportation routes with acutely toxic chemicals who
could be endangered in case of an incident;
The owners, managers, workers, and labor organizations
of the facilities and transportation systems;
Officials of the legislative and executive branches of
government who are responsible for establishing,
financing, and implementing accident prevention,
response, and environmental programs;
Local citizens with environmental and public health
concerns; and
Employees and officials of the organizations that
perform the actual response work associated with acutely
toxic chemicals, such as firefighters, police, and
health personnel.
While all the individuals noted above have a common interest in reducing
the risks posed by acutely toxic chemicals, their differing economic,
political, and social perspectives may cause them to favor different means for
promoting safety. For example, people who live near a facility with such
chemicals are likely to be greatly concerned about avoiding any threat to
their lives, and are likely to care less about the costs of developing
accident prevention and response measures than some of the other groups
involved. Others in the community are likely to be more sensitive to the
costs involved, and may be anxious to avoid expenditures for unnecessarily
elaborate prevention and response measures.
There may also be differing views among the agencies and organizations
with emergency response functions about the roles they should play in case of
an incident. The local fire department, police department, civil defense
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agency, environmental protection agency, and public health agency are all
likely to have some responsibilities in responding to an incident. However,
each of these organizations might envision a very different set of
responsibilities for their respective agencies for planning or for management
on scene.
In organizing the community to address the problems associated with
acutely toxic chemicals, it is important to bear in mind that all affected
parties have a legitimate interest in the choices among alternative means.
Therefore, strong efforts should be made to assure that all groups with an
interest in the planning process are included.
Some interest groups in the community have well-defined political
identities and representation, but others may not. Government agencies,
private industry, and trade unions at the facilities are all likely to have
ready institutional access to a contingency planning process. Nearby
residents, however, may lack an effective vehicle for institutional
representation. Organizations that may be available to represent the
residents' interests include neighborhood associations, church organizations,
environmental groups, or ad hoc organizations formed especially to deal with
the threats posed by the presence of acutely toxic chemicals in a neighborhood.
2.1.2 Special Role of Local Government
For several reasons, local governments have a special role to play in the
development of community awareness and emergency preparedness programs.
First, local governments bear major responsibilities for protecting public
health and safety by preventing and responding to accidents; local fire
departments, for example, generally have the lead responsibility for
responding to incidents involving acutely toxic chemicals. Second, one of the
principal functions of local government is to mediate and resolve the
sometimes competing ideas of different interest groups. Finally, local
governments generally have the fiscal and legislative authority to raise funds
for equipment and personnel required for emergency response.
2.1.3 Relationship with State and Regional Planning Efforts
Local contingency plans must give consideration to coordination with other
jurisdictions with whom it would be necessary to cooperate in responding to a
multi-jurisdictional incident. Because incidents stemming from the release of
acutely toxic chemicals are not constrained by jurisdictional borders,
multi-jurisdictional contingency planning at the State or regional level is a
useful complement to local planning efforts. In some cases, international
planning may be needed. Even if several groups have prepared good contingency
response plans, there could be confusion during an emergency if the various
plans are not carefully coordinated. And even if an incident is unlikely to
cross political boundaries, regional planning can provide several benefits.
By planning together, local jurisdictions may avoid the unnecessary purchase
of duplicative equipment and, by purchasing equipment or by training personnel
jointly, communities may be able to save money. Regional contingency planning
efforts can also provide a useful forum for local jurisdictions to discuss
common problems in a neutral political arena, for example, under the auspices
of a regional council of governments. The charter of such a regional council
could indicate how disputes are to be resolved.
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Because regional organizations generally lack fiscal and administrative
authority for implementing emergency response plans, regional contingency
planning efforts often cannot serve adequately as substitutes for local
planning. Thus, in deciding to participate in planning at the regional level,
communities should recognize that complementary local planning efforts will
often still be required.
Communities should work with their State governments before beginning and
throughout the development of a preparedness program.
2.1.4 General Recommendations
Here are some conclusions and recommendations that will help the planning
effort:
All local political jurisdictions with emergency
response authority should take steps to conduct a
community awareness and preparedness program and provide
for its leadership if the chemicals are found within its
boundaries. It is recommended that such steps be
initiated by the jurisdiction's chief executive
official (e.g., mayor, city manager, county
executive). If a chief executive does not assume this
responsibility, other interested parties should initiate
action. They should recognize, however, that successful
implementation of preparedness plans requires the
cooperation and approval of local government. If more
than one political jurisdiction has emergency response
authority for a single area, it is essential that their
chief executives should coordinate the planning process.
Particular efforts must be taken to achieve
understanding and cooperation among parties involved,
because of the differing perspectives of groups within
the community strongly concerned about the potential
hazards of acutely toxic chemicals. It is recommended
that overall responsibility for developing a community
awareness and preparedness program for acutely toxic
chemicals be assigned to a "work group" comprised of
representatives from each element of the community with
a substantial interest. If a community chooses not to
assign the responsibility to such a work group, it
should recognize that the ultimate public acceptance of
the program will require some appropriate consensus-
building process involving broad-based participation
throughout the process by concerned interest groups.
2.2 ORGANIZING THE COMMUNITY -- THE SPECIFIC STEPS
It is recommended that the following specific steps be taken in organizing
a community to develop an awareness and preparedness program for acutely toxic
chemicals, with the first three items accomplished in whatever order is best
suited for local circumstances:
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Take stock of related preparedness efforts and
organizations (including advisory councils);
Select a leader;
Form a work group;
Assign responsibility for specific preparedness
planning tasks, including specific completion dates;
Establish procedures for monitoring and approving
results of planning assignments; and
Establish procedures for validation and implementation
of approved plans.
2.2.1 Taking Stock of Related Preparedness Efforts
and Organizations
Before undertaking any other work, steps should be taken to search out all
existing contingency plans. To the extent possible, currently used plans
should be amended to account for the special problems posed by acutely toxic
chemicals, thereby avoiding redundant contingency plans. Even plans that are
no longer used may provide a useful starting point. More general plans can
also be a source of useful information and ideas. In seeking to identify
existing plans, it will be helpful to consult organizations such as:
State and local emergency management offices;
State and local air pollution and environmental
agencies;
State and local transportation agencies;
State and local public health agencies;
Fire departments;
State and local public service agencies, such as the
Red Cross;
Local industry and industrial associations; and
Regional offices of Federal agencies such as EPA and
FEMA.
In addition to the above organizations, communities should coordinate
their activities with those of the Federal agencies as outlined in the
National Oil and Hazardous Substances Pollution Contingency Plan (NCP). The
NCP establishes an organizational structure for Federal responses to hazardous
materials releases that include the National Response Team (NRT), 12 Regional
Response Teams (RRTs), and predesignated Federal On-Scene Coordinators
(OSCs). The NRT, composed of 12 Federal agencies with major environmental and
public health responsibilities, carries out national planning and coordination
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for responding to oil and hazardous substance emergencies. The regional
counterparts to the NRT are the 12 RRTs. There is an RRT, made up of regional
representatives of the NRT agencies as well as representatives of each State,
for each Federal region and for Alaska and the Caribbean Islands. These RRTs
serve as planning and preparedness bodies before a response, and can provide
advice and assistance during a response. Each RRT maintains a Federal
Regional Contingency Plan designed to provide for coordination of a timely,
effective response by Federal agencies and other organizations to an oil
discharge or hazardous substance release.
Communities can contact or obtain information on the OSC and RRT covering
their area through the EPA Regional Preparedness Contact; see Appendix G for a
list of these contacts.
2.2.2 Selecting a Leader
The person initiating the contingency planning process may elect to
appoint a leader for the effort, or he may appoint a work group and have the
group decide who will lead the effort. Either approach can be used, and the
chief executive (or whoever initiates the process) should determine which
course is best suited to local circumstances. Regardless of how the leader is
selected, it is his or her role to oversee the work group's efforts through
the entire planning process.
Four factors are of major importance in selecting a leader:
The person's existing responsibilities related to
emergency planning, prevention, and response;
The degree of respect held for the person by groups
with an interest in acutely toxic chemicals;
The person's history of working relationships with
concerned community agencies and organizations; and
The person's ability to get the job done.
Logical sources for a leader include:
The Chief Executive or other elected official.
Leadership by a mayor, city or county council member, or
other senior official is likely to contribute
substantially to public confidence, encourage commitment
of time and resources by other key parties, and expedite
the implementation of program initiatives.
A public safety department. In most communities,
the fire department or police department bears principal
responsibility for responding to incidents involving
chemical releases and, typically, for inspecting
facilities as well.
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The emergency management or civil defense agency.
In many communities, officials of such an agency will be
knowledgeable and experienced in planning for major
disasters from a variety of causes.
The local environmental agency (particularly any air
pollution control agency) or public health agency.
Persons with expertise in these areas will have special
knowledge about the risks posed by acutely toxic
chemicals.
A planning agency. Officials in a planning agency
will be familiar with the general planning process and
with the activities and resources of the community.
Others. Communities should be creative and
consider other possible sources for a leader, such as
civic groups, volunteer organizations, and agencies not
mentioned above.
Personal considerations as well as institutional ones should be weighed in
selecting a leader. For example, a particular community's fire chief may
appear to have all the right resources for addressing the hazards of acutely
toxic chemicals. But if that individual does not get along with, say, police
or other local officials, it would be best to look for a different leader.
2.2.3 Forming a Work Group
In selecting the members of a work group that will bear overall
responsibility for developing a community awareness and preparedness program
for acutely toxic chemicals, four considerations are most important:
The group must possess, or have ready access to, a
wide range of expertise relating to the community, the
design and operation of chemical facilities and
transportation systems, and the mechanics of emergency
response and response planning;
The members of the group must agree on their purpose
and be able to work cooperatively with one another;
The members of the group must have the authority and
resources to get the job done; and
The group must be representative of all elements of
the community with a substantial interest in reducing
the risks posed by acutely toxic chemicals.
A comprehensive list of parties who should be considered for participation
in the work group (adapted from FEMA-10) is presented in Exhibit 2-1. Because
of the particular nature of the hazards of acutely toxic chemicals, the
members selected primarily for technical expertise should include chemists,
chemical engineers, industrial hygienists, and systems safety engineers.
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EXHIBIT 2-1
SUGGESTIONS FOR THE WORKING GROUP
Mayor or Representative
City Manager
County Executive or Representative
Chair (or representative), Board of Supervisors
Fire Department
Police Department
Emergency Management or Civil Defense Agency
Environmental Agency (e.g., Air Pollution Control Agency)
Health Department, Hospitals, and Medical Community
Major Industry Representatives
Labor Union Representatives (e.g., chemical and transportation)
Representatives from Volunteer Organizations (e.g., Red Cross)
Public Interest and Citizens Groups and representatives of affected
neighborhoods
Public Works (e.g., Waste Disposal, Water, Sanitation, and Roads)
Schools
Key Representatives from Bordering Cities and Counties
State Representatives
Planning Department
News Media Representative (local newspaper, radio, television)
Other Agencies (e.g., Welfare, Parks, and Utilities)
Other Technical Experts (e.g., Chemists and Chemical Engineers)
Note: Adapted from Planning Guide and Checklist for Hazardous Materials
Contingency Plans. Washington, D.C.: Federal Emergency Management
Agency and U.S. Environmental Protection Agency, 1981.
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For the work group to function effectively in an oversight capacity, its
size should be limited to no more than about 10 to 15 members. In communities
with many interested parties, it will be necessary to select from among them
carefully so as to assure fair and comprehensive representation. Some
individuals may feel left out of the planning process. This can be offset by
providing these individuals access to the planning process through the various
approaches noted in the following sections, such as membership on a task force
or advisory council.
2.2.4 Assigning Responsibility for Specific Preparedness Planning Tasks
The major tasks involved in preparedness planning for acutely hazardous
chemicals are:
Hazard identification and analysis, which consists
of identifying facilities and transportation routes with
acutely toxic chemicals and determining the associated
hazards posed to the community;
Capability assessment, the evaluation of existing
prevention and response capabilities, which includes
an inventory of existing prevention measures, response
capabilities and plans, and an assessment of their
adequacy; and
Preparation of a contingency plan that describes
the personnel, equipment, and procedures to be used in
case of accidental release of an acutely toxic chemical.
These tasks are not simple and are discussed in detail in Chapters 3 and 4.
Exhibit 2-2 outlines the essential components of the tasks, the expertise
needed, and some possible sources of this expertise within the community.
There are three basic staffing approaches that may be employed to
accomplish the tasks involved in preparedness planning:
Assign staff. Previous experience in related
planning efforts demonstrates the usefulness of
assigning one or more dedicated staff members to
coordinate the planning process and perform specific
planning tasks. The staff may be assigned within a
"lead agency" having related responsibilities and/or
expertise, or may be created separately through outside
hiring and/or staff loans from government agencies or
industry.
Assign task forces or committees. Planning tasks
can be performed by task forces or committees composed
entirely or in part of members of the work group.
Adding knowledgeable representatives of government
agencies, industry, environmental, labor, and other
community organizations to the individual task forces or
committees not only supplements the work group's
expertise and resources, but also provides an
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2-10
opportunity for additional interested parties to
participate directly in the process.
Hire contractors or consultants. If the personnel
resources available for the formation of a dedicated
staff and task forces or committees are limited, and
funds can be provided, the work group may elect to hire
contractors or consultants. Work assigned to a
contractor can range from a specialized job, such as
designing a survey, to performing an entire planning
task (e.g., hazard identification and analysis).
The three approaches presented above are not mutually exclusive. A
community may adopt any combination of the approaches that best matches local
circumstances and resources.
2.2.5 Establishing Procedures for Monitoring and Approving
the Planning Tasks
The monitoring and approval of planning assignments are the central
responsibilities of the work group. In discharging these responsibilities,
it is recommended that the work group operate on a consensus basis.
Achieving consensus takes more time than majority voting, but it is the best
way to assure that all represented parties have an opportunity to express
their views and that the decisions made balance competing interests. If it is
determined that a consensus method is inappropriate or impossible (e.g.,
because of the multi-jurisdictional nature of a group), the work group should
formally decide how issues will be resolved.
On critical decisions, it may be desirable to extend the scope of
participation beyond the membership of the work group. Approaches that can be
used to encourage community consensus building through broadened participation
in the process include:
Community workshops with short presentations by
work group members followed by a question-and-answer
period;
Publication of notice "for comment" in local
newspapers, that offers interested individuals and
groups an opportunity to express their views in writing;
Public meetings where citizens can submit oral and
written comments;
Invited reviews by key interest groups, that can
provide an opportunity for direct participation if all
such groups cannot be represented on the work group; and
Advisory councils, composed of a relatively large
number of interested parties, that can independently
review and comment on the work group's efforts.
The procedures to be used for monitoring and approving the planning
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2-11
assignments should be carefully thought out at the beginning of the program;
planning efforts work best when people understand the ground rules and know
when and how they will be able to participate. Of course, the monitoring and
approval process can be adjusted at any time to accommodate variations in
citizen interest.
2.2.6 Establishing Procedures and Assigning Responsibility for
Validating and Implementing the Approved Contingency Plans
After the planning process has been completed, plans must be validated and
implemented. The personnel and equipment required must be available, and
procedures that were agreed upon must be tested and implemented. To test the
adequacy of the plans, first tabletop and then field simulation exercises
should be conducted; it is far better to detect a flaw in a plan in a
simulation than during the response to an actual incident. In addition, it
will be necessary to update the hazard and capabilities assessments
periodically to assure that the plans are kept current. "Contingency Plan
Appraisal and Continuing Planning" is discussed in Chapter 5.
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3. GATHERING AND ANALYZING SITE-SPECIFIC INFORMATION
3.1 PURPOSE
This chapter provides examples of questions intended to assist community
work groups in gathering information to use in developing a contingency plan
for the accidental release of acutely toxic chemicals. The community work
group will need to gather information about ongoing measures facilities have
taken to control potential releases, the available response resources and
capabilities, and existing contingency plans. The request for information
should be an opening for continuing dialog within the community. The
information should be sought in such a way that facilities are encouraged to
cooperate and participate actively in the planning process along with local
government and other community groups. Once the dialog is established, the
community can learn what the facility is doing and what measures have been put
in place to reduce risks, and also identify what additional resources such as
personnel, training, and equipment might be needed in the community.
Some of the needed information may already be assembled as a result of
previous government efforts or cooperative programs such as the Chemical
Manufacturers Association (CMA) Community Awareness and Emergency Response
(CAER) program. For example, some State and local governments have adopted
community right-to-know legislation. These community right-to-know provisions
vary, but they generally require industry and other handlers of hazardous
materials to provide information to State or local authorities and/or the
public about hazardous materials in the community. CMA's CAER program is
totally voluntary and is in the preliminary stages of implementation. The
CAER program urges chemical plant managers to develop a community outreach
program and to provide the public with information on chemicals manufactured
or used within the plant. The major objective of the CAER program is to
improve local emergency response planning by combining chemical plant
emergency plans with other local planning to achieve an integrated community
emergency response plan. The work group should ask the local sites if they
are participating in the CAER program; this may stimulate non-CMA members to
use the CAER approach. If a facility is participating in the CAER program,
the emergency response plans developed by the facility will serve as a good
starting point in information gathering and contingency planning.
The questions presented in this chapter are examples of the types of
information-gathering questions a community may want to use in developing a
contingency plan. These questions should generate a logical flow of
additional questions. For example, one question asks whether any acutely
toxic chemicals are handled or stored near other chemicals that are flammable,
explosive, or reactive. If the answer is yes, subsequent questions could be
designed to: (1) identify these chemicals, and (2) determine how the facility
protects the chemical of concern (e.g., the chemical of concern is stored in
fire-proof containers, or the adjacent flammable, explosive, or reactive
chemical is stored under conditions to prevent leakage or explosion). A
community work group may use some, all, or none of the questions in this
document. Depending on the community's initial perception of potential risks,
the questions can be tailored by the work group to meet specific local needs.
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3-2
Work group members should always be aware that:
The information-gathering effort should not be
adversarial but rather a real attempt to cooperate in
solving a potential problem facing the entire community;
Facilities may be sensitive concerning what they
consider proprietary business information; and
Asking a particular question does not imply that there
is a problem but rather it shows a desire to identify
and address potential problems.
3.2 ORGANIZATION AND USE OF THE GUIDANCE
The guidance for gathering and analyzing site-specific information is
presented in four sections, relating, in turn, to a community's need to
identify:
Which sites in the community are preliminary
candidates to be evaluated for contingency planning
(Section A);
What is being done with acutely toxic chemicals at a
site and whether it presents a potential problem
(Section B);
What measures and controls a site has in place to
control accidental releases of acutely toxic chemicals
to the air (Section C); and
What response resources and capabilities exist both at
the site and in the community (Section D).
Figure 3-1 shows the general steps a work group can follow in using
site-specific information to guide and support its contingency planning
efforts.
Section A, Preliminary Site Identification, discusses the development of
a preliminary list of candidate sites in the community to be further evaluated
for contingency planning.
Section B, Analysis of Site Specific Activities Involving Acutely Toxic
Chemicals, discusses the method of conducting an analysis to assess the
potential hazard to the community posed by local activities involving acutely
toxic chemicals. Section B poses example questions that the community work
group can ask sites identified in Section A to develop an information base for
the necessary assessment.
As the community work group builds this information base, it may identify
a need to establish priorities among multiple sites and/or chemicals so that
the task of assessing the risk from individual sites and the need for an
emergency response plan can proceed in a manageable fashion. The tool,
developed by EPA, to prioritize sites is based upon an estimation of the
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Figure 3-1
SITE SPECIFIC INFORMATION GATHERING
AND ANALYSIS PROCESS
Identify the Preliminary List
of Sites for
Evaluation
(Guidance, Section A)
NO
Does the
Site Have Any
Chemicals, By-
products, Decomposition
Products, Combustion
Products, that
Meet the
Criteria?
Are Any Other
Hazardous Chemicals
Handled on the
Site?
Evaluate the
Next Site
Determine:
1) Quantities on Site; and
2) Sensitive Populations
Nearby
(Guidance, Section B)
Refer to FEMA-10
Contingency Planning
Guidance
Considering
Physical State,
Handling Conditions and
Methods, And Reactivity; Can an
Acutely Toxic Chemical be
Released to the Air?
(Guidance,
.Section B)
YES
Use Graph:
Is the Quantity
Contained or Generated
Site Sufficient to Get Off
Site in Concentra
tions at a Level
of Concern?
YES
NO
Place Site At Lower
Planning Priority for
Future Planning
Rank Site for Contingency
Planning and Gather
Information
Determine Efforts By
Industry to Control Releases
(Guidance, Section C)
Determine the ER Resources
and Capabilities at Site
(Guidance, Section D1)
Determine the ER Resources
and Capabilities of the
Community for Problems at
Site*(Guidance, Section D2)
*This Community-Wide Information Will Be Applicable To Ail Sites
Within the Community's Boundaries.
ER = Emergency Response
TO CONTINGENCY
VPLAN DEVELOPMENT,
-------
3-4
"quantity of concern" for each chemical. (See Appendix D for a full
discussion of the method and how to us* it.) The quantity of concern is
derived from an exposure level which is based on the Immediately Dangerous to
Life and Health level (IDLH). In addition to specific activities associated
with a chemical, sites handling quantities in excess of the quantity of
concern should be considered high priority. Those sites with quantities less
than the quantity of concern should not be eliminated from the planning
process, but rather should be assigned a lower priority depending on the
activities on a site. For further help in conducting a hazard analysis,
consult FEMA-10.
Some sites may have already conducted a hazard analysis to determine the
potential of an accidental release of an acutely toxic chemical in the
community. If this is the case, the work group should review the methodology,
results, and conclusions of the hazard analysis. The work group can then use
the Section B questions in discussions with site representatives to assure
that relevant factors were considered. If the group determines that the
relevant factors were considered, it may proceed directly to the next steps in
the planning process.
In addition to assessing the risks associated with facilities that handle
acutely toxic chemicals, the work group should consider the risks associated
with the possibility of a transportation accident. Identifying acutely toxic
chemicals that only pass through a community will be extremely difficult. The
work group may obtain assistance in collecting useful information from
representatives of trucking, rail, and barge industries in the community.
Guidance for evaluating the hazards associated with transportation may be
found in FEMA-10 and DOT's Community Teamwork document (see Appendix E).
Section C, Site Control Measures, provides example questions that the
community work group can ask at sites which handle acutely toxic chemicals to
determine the measures employed to control accidental releases. This
information will increase community awareness of what the site is doing to
lessen the risks of handling acutely toxic chemicals within the community.
This area is very sensitive and, if not properly addressed, can create a
destructive adversarial relationship between sites and other elements of the
community. All parties involved must be sensitive to issues of concern such
as:
The disclosure of proprietary business information;
Security concerns; and
The community's need to know what the site is doing
that could affect the health and safety of community
members.
The appropriate questions to ask at each site will depend upon whether the
site is processing, storing, using and/or transporting acutely toxic
chemicals. Different facilities will vary widely in process conditions and
configuration, layout, and control measures used. To ask the right questions
and make good use of the answers, trained technical persons should be included
on the work group (see Exhibit 2-1).
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3-5
Section D, Response Capabilities, provides example questions relating to
the response capabilities and resources of both the sites and the overall
community, as well as other resources which may be available within a fixed
timeframe. The first part of Section D suggests questions that the work group
can ask at each site where contingency planning is determined to be a
priority. The second part of Section D addresses questions relating to the
resources of the community overall; such questions need only be answered once
to satisfy the needs of the entire community contingency planning effort.
3.3 GUIDANCE
A. Preliminary Site Identification
The most important and accurate information source on the location of
facilities that produce, use, store, or transport acutely toxic chemicals will
be records of the local fire department and other local agencies concerned
with building codes, and worker and public safety. This information can be
interpreted and readily augmented by working group members with knowledge of
local activities. Local officials who know and understand the community are a
valuable resource. The local fire chief or head of the public health and
safety department will probably be able to generate a preliminary list of
sites to evaluate from his or her everyday knowledge of community industrial
operations.
A main data source for information on the major manufacturers of these
chemicals is the Stanford Research Institute (SRI) 1985 Directory of Chemical
Producers. This directory, which is updated annually, includes cross-
referenced information on the name, location, and products of more than 1,500
companies and 10,000 chemical products. The major limitation of the directory
is that it only includes information for those chemicals that are produced in
commercial quantities of more than 5,000 pounds total U.S. annual production.
Many of the chemicals that meet EPA's criteria are not included in the
directory because they have limited, specialized uses and are produced in
small quantities. Nonetheless, this source, along with information published
in other chemical industry directories (e.g., Chemcyclopedia, American
Chemical Society, Washington, DC; Chemical Week Buyers Guide, Chemical Week,
Inc., New York, NY; OPD Chemical Buyers Guide, Schnell Publishing Co., Inc.,
New York, NY) does provide a useful check on local records and knowledge.
Information on the primary uses of many of the chemicals that meet the
acutely toxic chemical criteria is contained in chemical profiles which may be
obtained from EPA (see Appendix A for a sample profile and the attached return
postcard for ordering a set). This information may be useful in identifying
community facilities where acutely toxic chemicals may be present.
Unfortunately, information on uses of chemicals is not publicly available for
all acutely toxic chemicals.
One approach for utilizing the use information in the Profiles is to
convert an identified use into an activity associated with a specific product
or industry. The Standard Industrial Classification (SIC) manual published by
the Department of Commerce is a very useful tool for this purpose. The
classification scheme includes an increasingly specific breakdown of major
industry groups and products by code numbers. There are 20 major industry
groups with two-digit SIC codes, which are broken down into 143 industry
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3-6
groups with three-digit SIC codes and about 450 industries at the four-digit
SIC code level. There are also 1,500 classes of products with five-digit SIC
codes and over 11,000 products with seven-digit SIC codes. Once a use for an
acutely toxic chemical is identified by SIC code number at the four-digit
level, it is possible to get information on the number of facilities in that
group at the county or State level from various U.S. Census Bureau
publications (e.g., 1982 Census of Manufacturers and County Business Patterns)
and State manufacturing directories available for all 50 states from
Manufacturers' News, Inc., Chicago, IL.
Information on storage and transportation of chemicals that meet the
acutely toxic chemical criteria is very difficult to obtain. Community work
groups will need to rely heavily on the assistance of the transportation
industry to acquire useful information. (The guidance in FEMA-10 and DQT's
Community Teamwork will be helpful for this purpose.)
B. Analysis of Site Specific Activities Involving Acutely Toxic
Chemicals
This section provides example questions to help the community determine:
(1) whether a site handles acutely toxic chemicals that meet the criteria; (2)
whether chemicals are handled that have by-products, decomposition products,
or combustion products that meet the criteria; (3) how much of these chemicals
are on the site; (4) how these chemicals are handled on the site; (5) how near
they are to the site fence line; and (6) what is the nature of the area around
the site.
The work group will use the information it gathers from the site in this
step to make judgments about the situation on the site and the degree of
potential risk it poses to the community. The work group needs to look
carefully at on-site conditions that could indicate potential problems. The
physical state of the chemical (e.g., gas, liquified gas, liquid, powder,
dust, solid) and the conditions under which it is handled on the site (e.g.,
under pressure, under high or low temperature, under inert atmosphere) are key
indicators of the potential for problems on site. For example, a substance
that is a gas under pressure and low temperature is apt to pose more problems
upon accidental release than a powder at ambient conditions (i.e., room
temperature and pressure). If a substance cannot become airborne because of
its physical state and handling conditions on the site, the work group may
wish to defer further efforts related to the substance. For example,
non-powdered solids or viscous liquids with very low vapor pressures (i.e.,
less than 0.001 mmHg) handled at less than ambient temperatures are not likely
to become airborne. The work group needs to think about the information it
has gathered, look at the chemicals and how they are handled at the site,
examine the potential for the chemical to be released and get off the site,
and determine the sensitivity of populations that could be potentially exposed
in the event of an accidental release. The tool, developed by EPA, to
prioritize sites based upon an estimation of the "quantity of concern" for
each chemical is provided in Appendix D. Consult FEMA-10 for additional help
in conducting a hazard analysis.
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3-7
Example Questions:
Do you have any chemicals on site that are on the list or meet the criteria?
Which ones?
How much is on the site? What is the range of
inventory (average, maximum, minimum)?
Do you have any chemicals on site that could generate by-products,
decomposition products, or combustion products that meet the criteria?
Which ones?
How much is on the site? What is the range of
inventory (average, maximum, minimum)?
How are the acutely toxic chemicals handled or stored on site?
Are special conditions like high or low pressure,
heating, or cooling required for handling or storage?
In what physical state(s) is the chemical found on
site (e.g., gas, liquified gas, liquid, solid, dust,
powder)?
Are these chemicals handled or stored near other
chemicals that are flammable, explosive, or reactive?
Are any special precautions taken to protect the
acutely toxic chemical?
Where are these chemicals handled or stored on the
site in relation to the site fence line?
How much (maximum, minimum, average) is handled or
stored in any location at any one time?
Are any of the acutely toxic chemicals transported to or from your plant?
How large are the shipments (in tons, gallons, or
pounds)?
Is the substance shipped by rail, truck, barge, or
other mode and in what kind of container (drums, bags,
tank wagons, etc.)? Specify.
How frequent are the shipments and at what time of day?
What are the transport routes through the community to
and from the site?
Have there been any past incidents involving hazardous materials at the site?
What response efforts were taken? What were the results?
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3-8
Is the area around the site best described as:
Residential?
Commercial?
Industrial?
Mixed?
Agricultural?
Special use/institutional?
Open space?
To evaluate the potential risk, and hence the degree of need for contingency
planning, it is important to determine who might be exposed in the event of a
release of acutely toxic chemicals to the air. Certain segments of the
population such as the elderly, children, and people with various health
problems will be at greater risk in the event of a release. The demographic
information needed for this purpose will probably not be in the possession of
site personnel and will have to be obtained from a local government agency or
community service group.
The work group should now determine if the chemical can become airborne,
and if so, is there enough of the substance on the site that, if it were all
accidentally released, it would result in reaching a level of concern at the
site fence line (see Appendix D for guidance).
C. Site Control Measures
This section contains example questions to help the community identify the
control measures a site has put in place to control releases from the various
activities on the site which involve acutely toxic chemicals, or by-products,
decomposition products, or combustion products that meet the criteria. The
activities of interest include processing, storage, and transfer at the site.
Example Questions:
If you handle (manufacture or use) any chemicals that meet the criteria on
site:
If you have a leak, what do you do?
If you store any chemicals meeting the criteria on site:
Do you have containment capacity available should you
have a leak?
If you have a leak from your storage area, what do you
do?
Do you have any special on-site transfer procedures between the transport
vehicle and on-site storage equipment for chemicals that meet the criteria?
Do you have any special on-site transfer procedures between storage and
process equipment?
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Do you have any safety control devices in place on transfer, processing, and
storage equipment on site (e.g., system interlock, pressure relief valve,
pressure/temperature control monitor, emergency cooling system, cut-off valve,
vent, flare)?
Do you have alarms, warning signals, and monitors to indicate when a release
occurs?
What is your plan and schedule to inspect and test the various chemical
handling equipment, safety control devices, and warning devices?
If you have a failure of any transfer, processing, or storage equipment, what
do you do?
D. Response Capabilities
This section contains example questions to help the community evaluate its
emergency response resources and capabilities. The section is divided into
two parts, one covering questions that the work group can ask a technical
representative from a particular site about that site, and the second which is
designed to help identify all resources within the community and requires
information from a variety of local response and government agencies. The
first part can be asked at each site being considered for contingency
planning. The second part need only be addressed once for the entire
community. This information will provide direct input into the development of
the community contingency plan and will assist the work group in evaluating
what additional emergency response resources may be needed in the community.
Example Questions:
1. Site
Do you have a safety plan (also referred to as an emergency or contingency
plan) for your site? Is your site plan coordinated with the local community
contingency plan?
Do you have available on-site emergency response
equipment (e.g., firefighting equipment, personal
protective equipment, communications equipment) and
trained personnel to provide on site initial response
efforts?
What equipment is available? (e.g., positive pressure
respirators, chemical suits, unmanned fire monitors,
foam deployment systems, radios, beepers, etc.)
Do you have medical support both on site and at local
hospitals for emergency exposures?
Who is the emergency contact for the site (person's
name, position, and 24-hour telephone number) and what
is the chain of command during an emergency?
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Do you have employee evacuation plans in effect and
are the employees trained to use them in the event of an
emergency?
What kind of line notification systems do you have
between the site and the local community emergency
services (e.g., direct alarm, direct telephone hook-up,
computer hook-up) to address emergencies on-site?
Does the site have a mechanism to alert employees and
the surrounding community in the event of a release?
How does the site educate the community about the
meaning of various alarms or warning systems?
How does the site coordinate with the community
government and local emergency and medical services
during emergencies?
Does the site have any mutual aid agreements for
obtaining emergency response assistance from other
industry members? If so, what are they and with whom?
Does the site have any contracts or other
pre-arrangements in place with cleanup specialists for
cleanup and removal of releases, or is this handled
in-house? What is the response time?
How does the site determine concentrations of released
chemicals existing at the site? (Are there toxic gas
detectors, explosimeters, or other detection devices
positioned around the site? Where are they located?)
Does the site have wind direction indicators
positioned within the site perimeter to determine in
what direction a released chemical will travel? Where
are they located?
Do you have the capability for modelling vapor cloud
dispersion?
Does the site have available auxiliary power systems
to perform emergency system functions in case of power
outages?
How often is your safety plan tested and updated?
Do you have a safety training plan for your employees?
Are your employees trained in the use of emergency
response equipment, personal protective equipment, and
emergency procedures detailed in the plant safety plan?
How often is training updated?
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Does the site hold simulated emergencies for training
purposes? How often? How are these simulations
evaluated and by whom? Are the local community
emergency response and medical service organizations
invited to participate?
Are employees given training in methods for
coordinating with local community emergency response and
medical services during emergencies? How often?
Does the site have an emergency response equipment and systems inspection plan?
Does the site have a method for identifying emergency
response equipment problems? Describe it.
Is there testing of on-site alarms, warning signals,
and emergency response equipment? How often is this
equipment tested and replaced?
2. Community
What local agencies make up your community's existing response preparedness
network? Some examples include:
Fire Department
Police/Sheriff/Highway Patrol
Emergency Medical/Paramedic Services associated with
local hospitals or fire or police departments
Emergency Management Agency/Civil Defense
Public Health Agency
Environmental Agency
Red Cross
Other local community resources such as transportation
department, public housing, communications, etc.
What is the capacity and level of expertise of the community's emergency
medical facilities, equipment, and personnel?
Does the community have arrangements or mutual aid agreements for assistance
with other jurisdictions or organizations (e.g., other communities, counties,
or the states; industry; military installations; Federal facilities; response
organizations; etc.)?
Does the community have an existing hazardous chemical contingency plan? Has
the community performed contingency planning for emergencies involving
releases of acutely toxic chemicals or other hazardous chemicals as part of a
general plan used for all emergencies?
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What is the current status of community contingency
plan/planning for acutely toxic chemicals or other
hazardous chemical emergenpies?
Does your community maintain an up-to-date technical
reference library of response procedures for chemicals?
Is there some community planning and coordination body
(e.g., task force, advisory board, interagency
committee)? If so, what is the defined structure and
authority of the body?
Has the community undertaken any surveys or
assessments of potential risks to the community from
facility or transportation accidents involving hazardous
chemicals?
Has the community performed any assessments of
existing prevention and response capabilities within its
own local emergency response network?
4
Have there been any training seminars, simulations, or
mock accidents performed by the community in conjunction
with local industry or other organizations? If so, how
frequently are they conducted?
If a hazardous chemical plan exists, is it integrated
into any existing community contingency plans for other
emergencies?
Who are the specific community points of contact and what are their
responsibilities in an emergency?
List the agencies involved, the area of responsibility
(e.g., emergency response, evacuation, emergency
shelter, medical/health care, food distribution, control
access to accident site, public/media liaison, liaison
with Federal and State responders, locating and manning
the command center.), the name of the contact, position,
24-hour telephone number, and the chain of command.
Is there any specific chemical or toxicological
expertise available in the community, either in
industry, colleges and universities, or on a consultant
basis?
What kinds of equipment and materials are available on
the local level to respond to emergencies? How can you
get the equipment, materials, and manpower to the scene
of an accident?
Does the community have specialized emergency response teams to respond to
acutely toxic chemical or other hazardous chemical emergencies?
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Have the local emergency services (fire, police,
medical) had any hazardous chemical training, and if so,
do they have and use any specialized equipment?
Are there specialized industry response teams (e.g.,
CHLOREP, AAR/BOE), State/Federal response teams, or
contractor response teams available within or close to
the community? What is the average time for them to
arrive on the scene?
Has the community sought any resources from sites to
help respond to emergencies?
Is the community emergency transportation network defined?
Does the community have specific evacuation routes
designated? What are these evacuation routes? Is the
general public aware of these routes?
Are there specific access routes designated for
emergency response and services personnel to reach
facilities or accident sites?
Does the community have other procedures for protecting citizens during
emergencies (e.g., remain indoors, wear gas masks)?
Is there a designated emergency communications network in the community to
alert the public, update the public, and provide communications between the
command center, the accident site, and off-scene support?
What does the communications network involve (e.g.,
special radio frequency, network channel, siren,
dedicated phone lines, computer hook-up)?
Is there an up-to-date source list with a contact, position, and phone number
for technical information assistance? This can be Federal (e.g., NRC, USCG
CHRIS/HAGS, CDC, HMTC, OHMTADS), State, industry associations (e.g., CHEMTREC,
CHLOREP, AAR/BOE, PSTN), and local industry groups (e.g., local AIChE, ASME,
ASSE chapters).
Is there a source list with a contact, position, and phone number for
community resources available?
Does the list of resources include: wreck clearing,
transfer, transport, cleanup, disposal, analytical
sampling laboratories, and detoxifying agents?
Have there been any past facility and transportation incidents involving
hazardous materials in the community? What response efforts were taken? What
were the results?
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3.4 SUMMARY AND NEXT STEPS
Once a community work group has:
A. Identified a preliminary list of sites to evaluate for
further contingency planning (Section A),
B. Identified sites where acutely toxic chemicals or
chemicals that have by-products, decomposition products,
or combustion products that meet the criteria are
located and performed an analysis of the potential
hazards (Appendix D) to the community public health and
safety in the event of a release to the air (Section B),
C. Identified the safety control measures in place on the
activities at the sites to control releases of acutely
toxic chemicals (Section C), and
D. Identified the emergency response capabilities and
resources both at each site of concern and within and
around the entire community for responding to potential
emergencies (Section D),
it can then identify where the community needs to augment current response
preparedness capabilities and planning to address acutely toxic chemicals.
The work group should then proceed with efforts to develop a contingency plan
to address these needs. The following chapter provides specific guidance to
assist the group towards those ends.
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4. CONTINGENCY PLAN DEVELOPMENT AND CONTENT
4.1 INTRODUCTION
This chapter presents and discusses a comprehensive list of the elements
of a contingency plan for responding to acutely toxic chemical accidents.
Communities that are adapting an existing plan or incorporating this within a
more general contingency plan, can use the list in Section 4.2 to evaluate the
present plan and identify what elements need to be added, deleted, or amended
in order to deal with the special problems associated with the accidental
release into air of acutely toxic chemicals. It will quickly be evident that
some elements in the list are simple and easy to accomplish, while other
elements will require a significant amount of work.
The plan elements will be presented in the form of a sample outline,
delineating the items that should be included in a comprehensive plan and how
these items might best be arranged. The sample outline is not a model. It
is not meant to constrain any community. Indeed, each community should seek
to develop a plan that is best suited to its own circumstances, taking
advantage of the sample outline as is appropriate.
The type of plan envisioned in the sample outline presented below is a
comprehensive plan that would affect all governmental and private
organizations involved in emergency response operations in a particular
community. Its basic purpose would be to provide the necessary data and
documentation to anticipate and coordinate the many persons and organizations
that would be involved in emergency response actions. As such, this sample
plan outline is not intended to be a "hip-pocket" emergency response manual,
although sections of the plan could, with some revisions, be used for such a
purpose. Nor is the plan envisioned in the sample outline intended to serve
as a detailed "Standard Operating Procedures" manual for each of the many
agencies and organizations involved in emergency response actions, although it
could certainly be used as a starting point for such a manual.
As stated in Chapter 1, this guidance is meant to enhance community
preparedness and response capability. The development of community awareness
and a contingency plan are only means to achieving these ends. Communities
should recognize that developing community awareness and a contingency plan
are part of the process of becoming better prepared to respond to an incident.
The sample outline is presented in Section 4.2. The sections following
will discuss the content of specific plan elements and present suggestions on
how to go about developing a plan.
4.2 SAMPLE OUTLINE OF A CONTINGENCY PLAN
The following outline is adapted from the general outline presented in
Section 4 of FEMA-10 to deal with the special case of responding to acutely
toxic chemicals:
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i. Emergency Response Notification Summary
ii. Record of Amendments
iii. Letter of Promulgation
iv. Acknowledgment
v. Table of Contents
I. Introduction
A. Abbreviations and Definitions
B. Purpose
C. Relationship to Other Plans
D. Assumptions/Planning Factors
E. Concept of Operations
1. Governing Principles
2. Organizational Roles
II. Emergency Response Operations
A. Notification of Release
B. Initiation of Action
C. Coordination of Decision-Making
D. Public Information/Community Relations
E. Personal Protection/Evacuation
F. Resource Management
G. Personnel Safety
H. Acutely Toxic Chemicals
I. Countermeasures
J. Response Action Checklist
K. Attachments
1. Emergency Assistance Telephone Roster
2. Siren Coverage
3. Emergency Broadcasting System Messages
4. Evacuation Routes
5. Traffic Control Points
6. Access Control Points
7. Evacuation Routes for Special Populations
III. Appendices
A. Basic Support Documents
1. Legal Authority and Responsibility for
Responding
2. Acutely Toxic Chemicals Information
3. Hazards Identification and Analysis
4. Response Organization Structure/Coordination
5. Laboratory, Consultant, and Other Technical
Support Resources
6. Computer Utilization
B. Post-Emergency Operations
1. Documentation of Accidental Releases
2. Investigative Follow-Up
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C. Administrative and Other Support Documentation
1. Plan Distribution
2. Procedures for Changing or Updating Plan
3. Exercises
4. Training Requirements
5. Technical Library
(As noted in Chapter 1, FEMA-10 is now under joint revision by FEMA and EPA.
The revised document will include materials contained here and will ultimately
replace both this chapter and Chapter 5. Planners should consult FEMA-10 for
additional assistance in contingency planning.)
4.3 GENERAL OBSERVATIONS ABOUT THE SAMPLE OUTLINE
A contingency plan should help a community respond quickly and
efficiently to an accident. The section of the plan entitled "Emergency
Response Operations" details what must be done in an emergency. This section
is the core of the plan and it should be readily accessible. The
"introduction" describes the scope and background assumptions of the plan.
Gathered into the appendices is a variety of materials including
post-emergency operations, methods for maintaining an up-to-date operational
plan, and sets of information accumulated during the planning process. A
brief preliminary section at the front includes preface materials not central
to the plan itself.
The sample outline is large and complex. Anyone developing a contingency
plan for the first time could be overwhelmed by the prospect of having to
produce such a comprehensive plan. The following observations might be
helpful to community planners.
Some sections of the plan are far more important than other sections at
the time of a real emergency. In fact, if a really good plan is developed,
probably only Section II ('Emergency Response Operations") will be needed at
the time of an accidental release.
Some sections of the plan can be written towards the end of the planning
process and will serve merely to make the plan better organized and more
useful. As an example, the preliminary five sections could all be prepared
quite quickly when the finishing touches are being put on the plan.
Some sections of the plan are collections of information. Such
information might have taken a great deal of time to gather and organize, but
it is not part of response operations. These sections will have been used
when you put together Section II. Examples of such sections are Appendices
A.I, A.3, A.5, and C.5.
Some sections describe activities to be performed after an accident, but
not precisely at the time of the accidental release. Because they are
relatively less urgent, these activities are not included in Section II.
Examples of this can be found in Appendices B.I and B.2.
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4.4 HINTS FOR WRITING A PLAN
Everyone will go about planning in a different way. Nevertheless, it is
possible to suggest a few steps that will facilitate the planning process.
Let us presume that a community has a planning leader and work group.
Begin by deciding whether a plan is actually needed and what its scope
should be. For help in this step, see Chapter 3. The hazards identification
and analysis generated through this process will ultimately be included as
Appendix A.3 of the contingency plan. Information concerning available
resources will be gathered in Section II.F, "Resource Management."
Throughout the planning process much information will be gathered. From
the beginning sort out ana categorize this information. For example, maintain
a list of laboratory and consultant resources for Appendix A.5. Organize
information about Federal and State disaster response assistance for Appendix
A.4. Maintain a file on any legal requirements for Appendix A.I in the final
plan. Similarly, write down all educational opportunities for Appendix C.4.
Assign someone to begin an up-to-date telephone roster. Planners should
periodically collate helpful phone numbers. This roster will be an integral
part of the plan as an attachment to Section II.
As soon as the hazards identification and analysis reveals the need for a
plan, have someone begin gathering detailed information about acutely toxic
chemical substances. He/she can use EPA's profiles, local chemical plants,
and other hazardous materials lists. This will become Appendix A.2 and will
also influence the content of Section II.H.
Also, when the need for a plan is evident, have a group begin on Section
II. This will require much work, meetings with potential response personnel,
research for information, and in some cases, preliminary simulation
exercises. When this section is finished, the plan is nearly completed.
Section II should be tested by means of simulation exercises. (Plan appraisal
techniques are discussed at the beginning of Chapter 5.) If such testing
reveals flaws in Section II, the planners must be prepared to make revisions.
When Section II is finally judged workable, the various plan sections should
be collated, preface materials should be composed, and the plan can be adopted
under appropriate community procedures and then published.
The final plan should be kept in a loose-leaf binder so that additions and
corrections can easily be made. Planners seeking detailed assistance in the
actual development of a contingency plan should contact State or Federal
Regional staff (see Appendix G).
4.5 EXTENDED COMMENTS ON THE SAMPLE OUTLINE OF A
CONTINGENCY PLAN
We shall now describe in some detail what sorts of information could be
included in each element of the contingency plan.
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Plan Section i: Emergency Response Notification Summary
24-Hour emergency response hotline telephone numbers
-- Local number to notify area public officials and response personnel
-- National Response Center (800-424-8802)
Essential emergency reporting information including:
Name and telephone number of caller
-- Location, source, and nature (e.g., leak, explosion, derailment)
of accidental release
Number of dead or injured
Name of acutely toxic chemical released
Time of release
Type of release (e.g., instantaneous, continuous, intermittent)
Amount of chemical released so far/duration of release
Total amount of chemical that may be released
-- Present status of the chemical (gas, liquid, etc.)
-- Whether significant amounts of the chemical appear to be entering
the atmosphere
Direction of vapor clouds or plumes
-- Weather conditions
Local terrain conditions
Possible health effects/medical emergency information
Other agencies (with telephone numbers) to notify immediately (e.g.
hospitals, Red Cross, CHEMTREC, etc.)
Comment: The local 24-hour emergency response hotline should be called
first. Provision should be made for notifying nearby
municipalities and counties that could be affected by a vapor
cloud.
Answers to some of these questions may be unknown by the
caller, but it is important to gather as much information as
possible very quickly in order to facilitate decisions on
public notification and evacuation. Normally, the
organization that operates the emergency response hotline is
responsible for informing others (e.g., hospitals, Red Cross,
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etc.) once the initial notification is made. To ensure that
the appropriate Federal On-Scene Coordinator (OSC) is notified
of a release, the National Response Center operated by the
U.S. Coast Guard, should be included in the notification
listing. It should be noted that the Comprehensive
Environmental Response, Compensation, and Liability Act
(CERCLA) requires that the National Response Center be
notified of releases of many toxic chemicals under the
so-called Reportable Quantity (RQ) provisions. We are
suggesting here, however, that the National Response Center be
notified anytime a release occurs. The National Response
Center telephone number is 800-424-8802 (202-426-2675 in the
Washington, B.C., area).
This emergency response notification section should be:
BRIEF -- never more than one page in length.
EASILY ACCESSIBLE -- located on the cover or first
page of the plan. It should also be repeated at least
once inside the plan, in case the cover is torn off.
SIMPLE -- reporting information and emergency telephone
numbers should be kept to a minimum.
Plan Section ii: Record of Amendments
Change record sheet
Date of change
Recording signature
Page numbers of changes made
Comment: Maintaining an up-to-date version of a plan is of prime
importance. When corrections, additions, or changes are made,
they should be recorded in a simple bookkeeping style so that
all plan users will be aware that they are using a current
plan.
All that is necessary for this page is a set of columns
indicating date of change, the identification number for each
change made, and the signature of ttie person making the
change. It is also a good idea to include a notice of where
to report changes on this sqyne sheet.
Plan Section iii: Letter of Promulgation
Statement of plan authority
Comment: This letter, signed by the community's chief executive, is a
statement of legal authority and responsibility for putting
the plan into action. To the extent that the execution of
this plan involves various private- and public-sector
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organizations, it may be appropriate to include here letters
of agreement signed by officials of these organizations.
Plan Section iv: Acknowledgement
Identification of plan contributors
Plan Section v: Table of Contents
List of topical sections, figures and tables
Comment: Response to releases of acutely toxic chemicals must be
speedy. Page references in the table of contents should be
clear. It is recommended that key sections be tabbed so that
they can quickly be found in an emergency. Critical maps,
charts, and figures should also be clearly listed by page
numbers and tabbed.
Plan Section I: Introduction
Plan Section I.A: Abbreviations and Definitions
Comment: Frequently-used abbreviations and acronyms, as well as the
definitions of technical terms, should be gathered here for
easy reference.
Plan Section I.B: Purpose
Comment: This should be a clear and succinct statement of when and how
the plan is meant to be used. It is appropriate to list those
facilities and transportation routes explicitly considered in
the plan.
Plan Section I.C: Relationship to Other Plans
Comment: A major task of the planning group is to integrate planning
for acutely toxic chemical accidents into already existing
plans. Where there is more than one facility in a community,
it is probable that several contingency plans have been
prepared. It is essential to coordinate these plans. When
more than one plan is put into action simultaneously, there is
a real potential for confusion among response personnel unless
the plans are carefully coordinated. All contingency plans
which might be employed in the event of an accidental release
of an acutely toxic chemical should be listed in this
section. The National Contingency Plan, the Federal Regional
Contingency Plan, and any State plan should be referenced. Of
special importance are all local contingency plans.
Plan Section I.D: Assumptions/Planning Factors
Geography
Climate
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Particular characteristics of each facility and the transportation
routes for which the plan is intended
On-site details
-- Neighboring population
Surrounding terrain
Assumptions
Comment: Information for this section will be gathered from the
hazards identification and analysis done by planners. This is
not the entire hazards identification and analysis (see
Appendix A.3). Rather, this section is a summary overview of
precisely what local conditions make a contingency plan
necessary. Assumptions are the advance judgments concerning
what would happen in the case of an accidental release. For
example, planners might assume that a certain percentage of
local residents will spontaneously evacuate the area along
routes other than specified evacuation routes.
Plan Section I.E: Concept of Operations
Plan Section I.E.I: Governing Principles
Comment: The plan should include brief statements of precisely what is
expected to be accomplished if an accident should occur. For
example, if a community has limits on its evacuation
capabilities, one governing principle would be that emergency
response actions will address these constraints.
Plan Section I.E.2: Organizational Roles
Municipal government
Chief elected official
Emergency management director
Communications personnel
Fire service
Law enforcement
-- Department of Public Health
-- Department of .Public Works
-- Environmental Agency
County government
Facility/Transportation officials
Nearby municipal and county governments
State government
Environmental protection organization
Emergency management organization
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Federal government
-- EPA
-- FEMA
-- DOT
-- U.S. Coast Guard
-- OSHA
Comment; This section lists all those organizations and officials who
are responsible for planning and/or executing the response to
an accident involving acutely toxic chemicals. The role of
each organization/official should be clearly described.
(N.B. The above list is not meant to be complete. Each
community will need to identify all the organizations/
officials who are involved in the local planning and response
process.)
Plan Section II: Emergency Response Operations
Comment: This section constitutes the most important operational
section of the plan. It serves as the basis for initiating
and coordinating all of the various actions that must take
place at the time of an actual release. This section
includes clear and specific instructions for action and
coordination.
Plan Section 11. A: Notification of Release
Comment: This section is exactly the same as Plan Section i, Emergency
Response Notification Summary, that appears on the first page
of the plan. Because speed of response is essential in an
acutely toxic chemical release, this initial data gathering
cannot be prolonged. Nevertheless, an accurate record of
crucial data is essential.
The local 24-hour emergency response hotline should be called
first. Provision should be made to notify nearby
municipalities and counties that could be affected by a vapor
cloud.
The National Response Center is to be notified by calling
800-424-8802. In the Washington, D.C., area call 202-426-2675,
Plan Section II.B: Initiation of Action
Name of on-scene authority
Method for establishing command post and communications network for
response team(s)
Method for activating emergency response teams
List of priorities for response actions (see Plan Section II.J)
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Method for alerting the public
-- Title and telephone number of person responsible for alerting the
public as soon as word of the accident is received
List of essential data to be passed on (e.g., health hazards,
precautions for personal protection, evacuation routes and
shelters, hospitals to be used)
Comment: This section is of urgent significance. Since this plan is
concerned with life-threatening chemicals, speed of
response is crucial. It is not enough to have planned for
alerting the community; one organization must be assigned the
responsibility of alerting the public as soon as word of the
accidental release is received. Delay in alerting the public
can lead to the loss of human lives.
Section II.K of the plan will include much of the specific
information needed to initiate the response. In addition to
sirens and the Emergency Broadcast System, it may be necessary
to use mobile public address systems and/or house-by-house
contacts. In this case, adequate protection must be provided
for persons entering the area to provide such help.
Plan Section II.C: Coordination of Decision-Making
Lead organization
Chain of command (illustrated in a block diagram)
Comment: Response to an acutely toxic chemical release will involve
many participants: police, firefighters, facility personnel,
health personnel, and others. It is also possible to have
more than one organization to perform the same service; for
example, local police, the county sheriff and deputies, as
well as the highway patrol may respond to perform police
functions. Because speed of response is so important,
coordination is needed among the various agencies providing
the same service. It will prove helpful to identify (by
title) the one individual responsible for each participating
organization, and the one individual responsible for each
major function and service. Of course, the plan should
clearly identify the lead agency for responding to acute
hazards incidents.
Work out, in advance, the following:
(1) Who will be in charge (lead organization)
(2) What will be the chain of command
(3) Who will maintain the command post and keep it secure
(4) Who will have advisory roles (and what their precise
roles are)
(5) Who will make the technical recommendations on
response actions to the lead agency
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(6) How do the participants keep each other informed
(7) Who (if anyone) will have veto power
This chain of command should be clearly illustrated in a block
diagram.
Special consideration must be given to the on-going
communications listed as #6 above. Different response
organizations typically use different radio frequencies.
Therefore, specific provision must be made for accurate and
efficient communication among all the various organizations
during the response itself.
Plan Section II.D: Public Information/Community Relations
Method for keeping the public informed
provision for one person to serve as liaison to the public
list of radio and T.V. contacts
It is important to provide accurate information to the public in
order to prevent panic. Some citizens simply want to know what is
happening. Other citizens may need to be prepared for possible
evacuation or they may need to know what they can immediately do
to protect themselves. Because information will be needed
quickly, radio and television are much more important than
newspapers in acutely toxic chemical releases. One person
should be identified to serve as spokesman. The chain of
command should include this spokesman. Other members of the
response team should be trained to defer all communications and
public relations issues to this one person.
Plan Section II.E: Personal Protection/Evacuation
Chemical-specific personal protection plan
Name of person who can order an evacuation
Risk zones where evacuation could be necessary and a method for
notifying these places
Methods for controlling traffic flow
Shelter locations and other provisions for evacuations (special
assistance for hospitals, etc.)
Comment: Evacuation is the most sweeping response to an accidental
release. The plan should clearly identify under what
circumstances evacuation would be appropriate and necessary.
Plans also need to be made for communicating specific personal
protection information to the community. For example, for
some chemicals it is safer to keep citizens inside with doors
and windows closed rather than to evacuate. It is also
important to distinguish between general evacuation of the
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entire area and selective evacuation of a part of the risk
zone. Provision must be made for quickly moving traffic out
of the risk zone and also for preventing outside traffic from
entering the risk zone. If schools are located in the risk
zone, the plan must identify the location to which students
will be moved in an evacuation. All of this information
should be listed in the Attachments in Section U.K.
Plan Section II.F: Resource Management
List of personnel needed for emergency response
List of vehicles needed for emergency response
List of equipment needed for emergency response
Comment: This section must list the resources that will be needed, and
where the equipment and vehicles are located or can be
obtained. A major task in the planning process is to identify
what resources are already available and what must still be
provided. This section should also address funding questions.
Plan Section II.G: Personnel Safety
Standard order of procedure for entering and leaving sites
Accountability for personnel entering and leaving the hazardous site
Recommended safety equipment
Personal safety precautions
Comment: Section II.F will list safety equipment that is necessary to
carry out response actions. This section should note any
personal safety precautions and special equipment that are
appropriate for each acutely toxic chemical to be found in the
community. Consult local chemical industries and/or EPA's
training course, or other Federal or State safety or response
courses, for helpful information.
Plan Section II.H: Acutely Toxic Chemicals
CHEMTREC Phone Number: 800-424-9300 (District of Columbia:
202-483-7616) -- The Chemical Transportation Emergency Center
(CHEMTREC), a 24-hour-a-day telephone service operated by the Chemical
Manufacturers Association, can provide information useful to on-scene
responders to any chemical emergency.
List of appropriate data for acutely toxic chemicals in your
community (for use on-scene)
Comment: Each community will prepare this section differently. A
formal hazards identification and analysis will identify each
acutely toxic chemical that is to be found in the community.
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Communities that have a large number of these substances in
their midst will probably simply list those chemicals here and
refer to the appropriate sections of Appendix A.2. If only a
few chemicals are found in a community, then this section of
the plan should list the properties of each chemical, with
special consideration to their toxicity, reactivity, toxic
effects, and steps to counteract their hazardous action in the
human body. This information should be presented in brief,
clear box diagrams so that response teams can act quickly to
save human lives. This information is published as Chemical
Profiles with EPA's list of acutely toxic chemicals. Planners
can also consult CHEMTREC, DOT's 1984 Emergency Response
Guidebook, USCG CHRIS Manual, and other hazardous materials
listings.
Plan Section 11.1: Countermeasures
Exposure assessment
Containment and mitigation actions
Cleanup methods
Restoration of the surrounding environment
Comment: After the official notification that a release has occurred,
it is still crucial to monitor the release and assess its
impact. Usually the facility at which the release has
occurred will have the best equipment for this purpose. If
the Federal OSC arrives quickly at the scene, his/her
resources can be employed.
A clear and succinct list of appropriate containment
countermeasures should be prepared for each acutely toxic
chemical in the community. This section should be coordinated
with section II.G on "Personnel Safety" so that response teams
are not subjected to undue danger. Much of this information
will be found in the chemical profiles (see Appendix A for a
sample profile); other hazardous material publications should
be consulted also.
It is important to determine whether a fire should be
extinguished or allowed to burn itself out. Water used in
firefighting could become contaminated and need to be
contained. In addition, some materials may be water-reactive
and pose a greater hazard in contact with water. Some vapors
may condense into pools of liquid which must be contained and
removed. Accumulated pools may be recovered with appropriate
pumps, hoses, and storage containers. Various foams may be
used to reduce vapor generation rates. Water spray or fog may
be applied at downwind points away from "cold" pools to absorb
vapors and/or accelerate their dispersal in the atmosphere.
Volatile liquids might be diluted or neutralized.
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If the vapor comes to the ground on crops, on playgrounds, in
drinking water, or other places where humans are likely to be
affected by it, the area should be tested for contamination.
Of course, appropriate steps must be taken if animals are in
contact with the chemical. It is important to identify in
advance what instruments and methods can be used to detect the
chemicals in question.
Restoration of the area is a long-range project, but general
restoration steps should appear in the plan.
Plan Section II.J: Response Action Checklist
Comment: Response action checklists are a way of condensing much
useful information. They are helpful for a quick assessment
of the response operation. If checklists are used, they
should be prepared in sufficient detail to ensure that all
crucial activities are included. For help in preparing a
checklist consult FEMA-10.
Plan Section II.K: Attachments
Comment: Gathered here are various clear and precise guides for action
during the emergency. Some communities might choose to print
these attachments separately and distribute them to the
personnel most likely to need them during an emergency. Never
presume that any responder has memorized every aspect of
his/her role. Exact printed directions should be readily
available for immediate use in an emergency. The following
suggested list of attachments is not meant to be exhaustive;
some communities might choose to include other items as
additional attachments.
Plan Section 11. K.I: Emergency Assistance Telephone Roster
List of telephone numbers for:
Participating agencies
Technical and response personnel
Public and private support groups
-- CHEMTREC
Comment: An accurate and up-to-date 24-hour a day emergency telephone
roster is an essential item. Briefly indicate the types of
expertise, services, or equipment that each agency or group
can provide. All phone numbers and names of personnel should
be verified at least annually. Whenever alternate numbers are
available, these should be listed. This section of the plan
should be able to stand alone so that copies can be carried by
public safety people and others. Examples of names for
possible inclusion in a telephone roster, similar to those
found in FEMA-10, are as follows:
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4-15
Police
Fire
Civil Defense
Public Works
Rescue Squad
Hospitals
Utilities
Community Officials
Bordering Political Regions
Industries
Volunteer Groups
Media
Plan Section U.K.2: Siren Coverage
Comment: This section should contain precise information on how sirens
or other signals will be used to notify the public in case of
an emergency. This should include information on what the
different signals mean, how to coordinate the use of sirens at
different facilities, how to activate the sirens, and the
geographic area covered by each siren.
Plan Section U.K.3: Emergency Broadcast System Messages
Comment: Sample EBS messages should be prepared with blanks that can
be filled in with precise information about the accident. One
sample message should be for an evacuation. One sample
message should describe any necessary school evacuations so
that parents will know where their children are. One sample
message should be prepared to tell citizens to take shelter
and other precautions to protect themselves.
Plan Section U.K.4: Evacuation Routes
Comment: Maps with evacuation routes and alternates clearly identified
should be prepared for each risk zone in the area. Such maps
should take account of prevailing wind patterns.
Plan Section U.K.5: Traffic Control Points
Comment: In order to expedite an evacuation, maps should indicate
control points where police officers should be stationed.
Plan Section U.K.6: Access Control Points
Comment: In order to restrict traffic from entering a risk zone, maps
should indicate all access control points.
Plan Section U.K.7: Evacuation Routes for Special Populations
Comment: In an evacuation schools, hospitals, nursing homes, and homes
for the physically and mentally disabled will require special
attention. Maps should indicate precise routes to another
location where special populations can be taken during an
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emergency evacuation, and the methods of transportation during
the evacuation.
Appendix A: Basic Support Documents
Appendix A.1: Legal Authority and Responsibility for Responding
Authorizing legislation (if any)
-- Federal (e.g., Clean Water Act, CERCLA, National Contingency Plan,
and the Disaster Relief Act)
-- State
-- Regional
Local
Mandated agency responsibilities
Comment: If there are laws regarding contingency planning for response
to acutely toxic chemical releases, list them here. The
community may choose to enact legislation in support of its
plan. Be sure to identify any agencies (e.g., FEMA) that must
respond to particular emergencies.
Appendix A.2: Acutely Toxic Chemicals Information
Technical information
Chemical and physical properties
-- Toxicity
Measurement techniques
-- Recommended fire-fighting techniques
Response personnel safety data
General public safety data
First aid procedures
Comment: This section should provide technical support information on
acutely toxic chemicals. Some planners could simply include
here various hazardous materials publications, including EPA's
chemical profiles (see Appendix A for a sample profile). Plan
Section II.H will refer users to this appendix in order to
find specific information about the chemical involved in the
accidental release.
An alternative is to include data only for those chemicals to
be found locally. If the second option is chosen, plan
revisers must be careful to update this section if and when
any new acutely toxic chemicals begin to be used, produced,
stored, or transported in the community.
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Appendix A.3: Hazards Identification and Analysis
Probable hazards
Vulnerable locations
Comment: This analysis is a crucial aspect of the planning process.
It consists of determining where hazards are likely to exist,
what places would most likely be adversely affected, and what
acutely toxic chemical substances could be involved. To
prepare a hazards analysis, consult Chapter 3 of this
guidance, FEMA-10, and DOT's Community Teamwork and
demonstration projects.
Individual data sheets and maps for each facility and
transportation route of interest could be included in this
section. Similar data could be included for recurrent
shipments of chemicals through the area. In communities with
many facilities the hazards analysis could be too massive to
include in the contingency plan. In that case, all
significant details should be summarized here. This appendix
should never become as brief as the summary found toward the
beginning of the plan in Section I.D, Assumptions/Planning
Factors.
Appendix A.4: Response Organization Structure/Coordination
Specialized response organization
Chain of command/lead agency
Assigned duties
How to use outside resources
Response capabilities
Procedure for using outside resources
Predetermined arrangements
Comment: This appendix contains detailed descriptions and information
on the Federal Regional Response Teams and the predesignated
Federal OSC (see Chapter 2 of this guidance). Because of
their distant location it is often difficult for such
organizations to reach a scene quickly; planners should
determine in advance approximately how much time would elapse
before the Federal OSC could arrive at the scene.
This appendix should also indicate where other disaster
assistance can be obtained from Federal, State, or regional
sources. Pre-arrangements can be made with higher-level
government agencies, bordering political regions, and chemical
plants; provisions should be made for coordinating with other
contingency plans and the local civil defense disaster plan.
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Appendix A.5:
Any coordination with outside agencies should be formalized
through mutual aid agreements or memoranda of understanding
specifying delegations of authority, responsibility, and
duties. These formal agreements can be included in the plan
if desired.
Laboratory, Consultant, and Other Technical Support
Resources
Telephone directory of technical support services
-- Laboratories (environmental and public health)
Private consultants
Colleges or universities (chemistry departments and special
courses)
Local chemical plants
Comment: This section should identify the various groups capable of
providing technical support and the specific person to be
contacted. These technical experts can provide advice during
a disaster and also be of great service during the development
of this plan. For this reason, one of the first planning
steps should be the gathering of information for this section.
Appendix A.6: Computer Utilization
Available software for the planning process and response capability
Comment: Computers can be very valuable for storing and retrieving
large volumes of data, accessing data bases, estimating
evacuation or hazard zones, keeping track of the overall
planning process, and on-scene capabilities to predict wind
dispersion of a chemical. Word processing capabilities can
facilitate plan preparation, updates, and distribution.
Appendix B: Post-Emergency Operations
Appendix B.I: Documentation of Accidental Releases
List of required reports
Reasons for requiring the reports
Format for reports
Comment: This appendix indicates what information should be gathered
about the release and the response operation. Key response
personnel could be instructed to maintain an accurate log of
their activities.
Appendix B.2: Investigative Follow-Up
Methods for determining whether the response mechanism worked
properly
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Comment: Identify in this section who is responsible for the
post-accident investigation to discover quickly the exact
circumstances and cause of the accidental release. The
documentation described in Appendix B.I should help this
investigation determine if response operations were effective,
whether the contingency plan should be amended, and what
follow-up responder and public training programs are needed.
Appendix C: Administrative and Other Support Documentation
Appendix C.I: Plan Distribution
List of organizations/persons receiving plan
Comment: The entire plan should be available to the public; it can be
stored at a library, the local emergency response office, or
some other public place. Individual sections of the plan
should be distributed to all persons responsible for response
operations. The plan distribution list should account for all
organizations receiving such copies of the plan. This
information is essential when determining who should be sent
revisions and updates to the plan.
Appendix C.2: Procedures for Changing or Updating Plan
Title and organization of responsible person(s)
Change notification procedures
Change frequency
Comment: Responsibility should be delegated to someone to make sure
that the plan is updated frequently and that all plan holders
are informed of the changes. Notification of changes should
be by written memorandum or letter; the changes should be
recorded in the RECORD OF AMENDMENTS page at the front of the
completed plan. Changes should be consecutively numbered for
ease of tracking and accounting.
Following are examples of information that must regularly be
checked for accuracy:
(1) Identity and phone numbers of response personnel
(2) Name, quantity, properties, and location of acutely toxic
chemicals in the community. (If a new acutely toxic
chemical begins to be made, used, stored, or transported
in the community, revise the plan as needed.)
(3) Facility maps
(4) Transportation routes
(5) Emergency services available
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This topic is considered in greater detail in Chapter 5 of
this guidance.
Appendix C.3: Exercises
Provision for regular tabletop and field simulation exercises
Comment: Exercises or drills are an important tool in keeping a plan
functionally up-to-date. These are simulated accidental
releases where emergency response personnel act out their
duties. The exercises can be tabletop, and/or they can be
realistic enough so that equipment is deployed, communication
gear is tested, and "victims" are sent to hospitals with
simulated toxic exposures. Planners should work with local
facilities when conducting simulation exercises. In addition,
the public should be involved or at least informed of these
exercises. EPA is also providing guidance on simulation
exercises through its forthcoming training program
complementing this guidance.
This section should specify:
(1) The organization in charge of the exercise;
(2) The frequency of exercises; and
(3) A procedure for evaluating performance and making changes
to contingency plans as necessary (see Appendix C.2 of
this sample outline and Chapter 5 of this guidance).
Appendix C.4: Training Requirements
Required training for response personnel
Courses, seminars, workshops that are required or recommended;
include only those available to local response personnel
Comment: Care should be taken to provide essential information and
training for response personnel. Training is available from
State agencies and the Federal government (e.g., EPA, FEMA,
and the U.S. Coast Guard).
Communities seeking help in developing preparedness and
response programs should consult appropriate State agencies.
States may consult with Federal Regional offices for
additional training and assistance (see Appendix G). EPA is
developing new training programs to complement this Chemical
Emergency Preparedness Program Guidance.
In addition to government agencies, consult universities or
community colleges (especially any fire science curriculum
courses), industry associations, the National Fire Protection
Association, and private firms (facilities, common carriers).
Many training films and slide presentations can be borrowed or
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rented at little cost. Many chemical companies and carriers
provide some level of training for free.
In addition to classroom training, response personnel will
need hands-on experience with equipment to be used during an
emergency.
Appendix C.5: Technical Library
List of references and their availability
General planning references
Specific references for acutely toxic chemicals
Technical references and methods for using national data bases
Maps
Comment: The appendix to this guidance document lists some planning
resources and how to acquire them. Facilities can provide
specific publications dealing with acutely toxic chemicals.
This section of the plan will list those published resources
that are actually available in your community. You will also
list any maps (e.g., of facilities, transportation routes,
etc.) that will aid in the response to an accidental release.
It is important for planners to acquire and understand
available hazardous materials data bases. Response guides
such as FEMA-10 should also be available locally.
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5. CONTINGENCY PLAN APPRAISAL AND CONTINUING PLANNING
Any contingency plan must be evaluated and kept up-to-date through
simulation exercises as well as by the regular collection of new data.
Effective emergency preparedness requires periodic review and evaluation, and
the necessary effort must be sustained at the community level without case-by-
case Federal approval. Plans should reflect any recent changes in: the
economy, available technology, toxic chemicals present, Federal and State
laws, road configurations, population size, emergency telephone numbers, and
facility location. This chapter describes key aspects of appraisal and
provides specific guidance for maintaining an updated contingency plan.
Planners may want to consult Chapter 5 of FEMA-10 for complementary material.
5.1 PLAN APPRAISAL
It is not sufficient merely to read over the plan in search of omissions
and/or errors. The draft plan should also be evaluated through simulation
exercises to see if its required activities are actually possible in reality
and if the evaluation would reveal more efficient ways of responding to a
real emergency. Experience gained from real emergencies should be used to
update the plan. Simulations can be full-scale field exercises or tabletop
exercises.
A field simulation exercise is a mock emergency in which the response
organizations that would be involved in an actual emergency perform the
actions they would take in the emergency. These simulations may focus on
limited objectives (e.g., testing the evacuation capability of local
hospitals). The responsible environmental, public safety, and health agencies
simulate, as realistically as possible, the notification, hazard
identification and analysis, command structure, command post staging,
communications, health care, containment, evacuation of affected areas,
cleanup, and documentation. Responders use the protective gear, radios, and
response equipment and act as they would in a real incident.
A low-cost, yet still valuable, version of a simulation exercise is the
staging of an indoor role-play, also called a tabletop exercise. In this
exercise, each agency representative describes and acts out what he or she
would do at each step of the response under the circumstances given.
Simulation exercises are most beneficial when followed by a meeting of all
participants to critique the performance of those involved and the strengths
and weaknesses of the plan's operation. The contingency plan should be
amended according to the lessons learned.
The details of how to conduct a plan appraisal should be included in
Appendix C.3 of the completed plan.
5.2 KEEPING THE PLAN UP-TO-DATE
All contingency plans become outdated because of social, economic, and
environmental changes. Keeping the plan up-to-date is a difficult task, but
can be controlled by scheduling reviews regularly. Outdated information
should be replaced, and the results of appraisal exercises should be
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incorporated into the plan. The following techniques will aid in keeping
abreast of the changes:
Establish a regular review period, preferably every
six months, but at least annually.
Make one organization responsible for coordination of
the review and overall stewardship of the plan. Choose
with reliability in mind.
Be prepared to reactivate the work group which
developed the original plan.
Include a "Record of Amendments and Changes" sheet in
the front section of the plan.
Include a "Where to Report Changes" notice in the plan
and a request for holders of the plan to report any
changes or suggested revisions to the responsible
organization.
Make any sections of the plan that are subject to
frequent changes either easily replaceable (e.g.,
looseleaf, separate appendix), or provide blank space
(double- or triple-spaced typing) so that old things can
be crossed out and new data easily written in. This
applies particularly to telephone rosters and resource
and equipment listings.
The organization responsible for review should do the following:
Maintain a list of plan holders, based on the original
distribution list, plus any new copies made or
distributed. It is advisable to send out a periodic
request to departments/branches showing who is on the
list and asking for any additions or corrections.
Check all telephone numbers, persons named with
particular responsibilities, equipment locations and
availability. In addition, ask departments and agencies
to review sections of the plan defining their
responsibilities and actions.
Distribute changes. Changes should be consecutively
numbered for ease of tracking. Be specific ("Replace
page with the attached new page ," or "cross
out on page and write in the following
(new phone number, name, location, etc.). Any key
changes (i.e., emergency phone number change, equipment
availability, etc.) should be distributed as soon as it
occurs. Do not wait for the regular review period to
notify plan holders.
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If practical, request an acknowledgement of changes
from whomever you send them to. The best way to do this
is to include a self-addressed send-back sheet ("I have
received and entered changes dated .
Signed ").
Attend any plan critique meetings and issue changes as
may be required.
These periodic updates are the primary factor in continuing planning.
Additional steps in continuing plan improvements are:
Incident reviews and critiques. They are usually held
after an accidental release to determine the plan's
effectiveness. (Because acutely toxic chemical releases
are very rare but extremely dangerous, the following two
actions are more important than this one.)
Exercises/tests. They put the plan into action by
simulating incidents. From these tests the adequacy of
the plan and personnel training and understanding of the
plan can be evaluated.
Training courses. They can better prepare
organizations to perform their function when a release
occurs.
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6. CRITERIA FOR IDENTIFICATION OF
ACUTELY TOXIC CHEMICALS
6.1 INTRODUCTION
This section is intended to assist communities in identifying those
chemicals that could cause serious human health effects from short-term
exposures such as accidental air releases. Such identification will be useful
information for focusing initial efforts in the development of State and local
contingency plans.
EPA has specified toxicity criteria that can be used to identify chemicals
that would be of special concern if the public were exposed to such chemicals
via accidental releases to the air. The identification of a chemical that
meets the criteria does not in itself indicate the potential for serious human
health effects in any release -- accidental or routine. Rather, such
identification indicates a need for the community to undertake a program to
investigate and evaluate the potential for accidental exposures associated
with the production, storage or handling of the chemical at a particular
site. Distinctions between this program and EPA's program for regulating
routine releases of air toxics are stated in Chapter 1 of this guidance.
The assessment of potential risk following accidental release is based on
an analysis of the chemical's toxicity coupled with an evaluation of possible
exposure. Acutely toxic chemicals are identified by applying the criteria;
the exposure assessment requires site-specific analysis of factors such as:
Quantities of the chemicals produced, stored, or
handled;
The physical state of the chemical in storage or in
the manufacturing process;
The potential for interaction with other chemicals;
The distance from potentially exposed populations; and
The specific safety precautions currently employed.
In the following sections of this chapter the Agency's approach to
identifying acutely toxic chemicals is described, numerical criteria are
presented, and a method of applying the criteria to identify acutely toxic
chemicals is described. Appendix A to this guidance presents a list of
chemicals derived by applying the stated criteria to the Registry of Toxic
Effects of Chemical Substances (RTECS) data base. Chemical profiles are
included under separate cover. These profiles provide information on the
listed chemicals that will be of use in developing contingency plans. Note
that the list of identified chemicals is not inclusive; additional work will
be needed by communities to identify chemicals in their environments that meet
the criteria. The list is intended to be a starting point for further
investigation. The end of this chapter directs communities to other hazardous
chemicals that exist beyond the chemicals identified under these criteria.
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6.2 APPROACH TO IDENTIFYING ACUTELY TOXIC CHEMICALS
EPA is concerned with identifying chemicals capable of producing serious
health effects that are manifested either immediately or shortly after an
acute exposure such as an accidental air release.
Unfortunately there is little information on the hazards to humans from
chemical exposures. Therefore, the Agency has chosen to use data from animal
species to infer effects in humans. The Agency assumes that humans and
animals, on the average, are similar in intrinsic susceptibility. Since human
populations are heterogeneous and individuals are expected to vary
considerably in their sensitivity to chemical substances, the Agency has
assumed that humans may be as sensitive as the most sensitive mammalian
species tested.
Because complete toxicological profiles that present all potential
concerns about the consequences of acute exposure are not uniformly available
on chemicals, the Agency focused on the most commonly reported information
from animal toxicity testing. Most frequently, data from acute toxicity
testing have been expressed as the median lethal dose (LDrn) when the
substance is taken by mouth or exposed to the skin, or median lethal
concentration (LC,..) when the substance is inhaled. These data represent
dose levels or concentrations of a chemical that will result in the death of
50 percent of the exposed test animals. In some cases, however, the acute
toxicity test did not estimate an LD,-n or LC-n; the only measure of
lethality reported is the lowest dose or concentration at which some animals
died (LDTn or LC ) . EPA has used the LDTri or LCT_ data values if
ijU IjU J_iU LiU
median values were not available for a chemical. The Agency chose to use
LC or LDTn values in such circumstances in order to avoid incorrectly
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omitting highly toxic chemicals from consideration.
Another inconsistency among reported acute toxicity data involves the
exposure duration for LC. or LC data from inhalation toxicity tests.
In some cases exposure times have not been reported; where exposure times have
been reported, they may vary from minutes to many hours. In using inhalation
toxicity data, the Agency considered reported LC (or where necessary
LCTn) values for inhalation studies of up to 8 hours in duration as well as
values for which times were not reported. The Agency chose to consider this
range of studies in order to make the best use of available acute toxicity
data.
6.3 CRITERIA
EPA has adopted the following criteria to identify acutely toxic chemicals
based on data from mammalian testing:
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Route
Acute Toxicity Measure
Value a/
Dermal
Oral
Median Lethal Dose
Less than or equal to 50 mg/kg
Less than or equal to 25 mg/kg
Inhalation Median Lethal Concentration Less than or equal to 0.5 mg/1 b/
(LD50>
Median Lethal Dose
(LD50>
a/ Criteria are to be matched against all mammalian test species evaluated
for all chemicals.
b/ Where time of exposure is any time up to 8 hours.
NOTE:
Where values for LD n or LC,-n data are lacking, but values for
LDTn or LCT
J_iU J
are available for a particular chemical, the Agency
recommends further investigation of the potential of that chemical (at
a particular site) to pose a potential hazard when the LDTn or
LCTn values fall within the selection criteria.
LU
A chemical is identified as acutely toxic according to these criteria if
mammalian acute toxicity data for any one of the three routes of
administration fall below the value specified for that route.
These criteria are consistent with those used by the European Economic
Community (EEC) and the World Bank (WB). EPA's criteria therefore recognize
the precedent set by these two organizations, the similarity in policy goals,
and the previous scientific opinions which established these criteria. EPA
has modified the EEC/WB criteria in three ways: lethality data from the most
sensitive mammalian species are included and not just those from rats;
inhalation exposure time up to 8 hours is adopted instead of using only a
or LD,_. data are used when LD
LU
or LC... are
3U
4-hour period; and LC
unavailable. The reasons for the modifications have been discussed in Section
6.2.
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6.4 APPLICATION OF CRITERIA TO IDENTIFY AND LIST ACUTELY TOXIC
CHEMICALS
The selection criteria can be applied to any data on chemical substances.
The Agency applied the criteria to a specific toxicity data repository in
order to develop an exemplary list of acutely toxic chemicals that may be of
use to State or local groups. The National Institute of Occupational Health
and Safety's Registry of Toxic Effects of Chemical Substances (RTECS), was
selected because it is the largest computerized set of acute toxicity data
available. EPA recognizes the limitations of using RTECS. The data in this
system, in general, are of variable quality, have not been subjected to
scientific scrutiny for adequacy, and have not been systematically screened
for errors upon entry. Therefore, it is often difficult to know the degree of
confidence that should be placed on the values listed. Nevertheless, due to
the impracticability of attempting to access and review copies of all acute
toxicity literature relevant to this project, the EPA is relying on the values
in RTECS while keeping in mind their limitations. It is expected that more
appropriate information on the toxicity of a chemical may be available from
the manufacturer.
EPA selected only those chemicals in current production by referring to
the 1977 TSCA inventory and the current EPA list of active pesticide
ingredients. Chemicals placed on the TSCA inventory since 1977 (i.e.,
premanufacturing notice chemicals) also have been reviewed and included on the
list if they meet the criteria.
EPA made additional efforts to check that chemicals included on its
initial list are in production. If EPA staff had no direct knowledge that a
chemical was in production, they checked recent literature and published
reports. Where literature and published reports were lacking or out-of-date,
EPA confirmed production through contacts with manufacturers, suppliers, or
users. If production was not confirmed, the chemical is so noted on the list.
The criteria values selected are for "very toxic" chemicals. Chemicals
with acute lethality values above the criteria values are not necessarily
safe. In fact, many are still toxic and may be threats to the community in an
accident situation. EPA has listed some of these chemicals based on large
production and acute lethality values as explained on the list of these "Other
Acutely Toxic Chemicals" in Appendix A.
Chemicals only used as food, drugs, or cosmetics and radioactive chemicals
not listed on the TSCA inventory were not screened for acute toxicity. These
chemicals are regulated by other agencies. Also, chemicals in a research and
development stage not listed on the TSCA inventory were not screened for acute
toxicity. If these research chemicals go into production, EPA will identify
and list such chemicals through its premanufacture review notice program.
Hazards from chemicals are not limited to chemicals identified under this
criteria. There are many explosive, flammable, reactive, and corrosive
chemicals that may warrant consideration in emergency preparedness and
response planning. Communities should consult the criteria and list of
chemicals in Department of Transportation (DOT) regulations found in 49 CFR
172.101 for explosive, flammable, reactive, and corrosive chemicals.
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6-5
Following is a list of criteria for explosive, flammable, reactive, and
corrosive chemicals (all section citations are to 49 CFR Part 173).
Class A Explosive
Class B Explosive
Class C Explosive
Blasting Agent
Gases
(basic definition)
Flammable Gas
Nonflammable Gas
Combustible Liquid
Flammable Liquid
Detonating or otherwise of maximum hazard. The nine
types of Class A explosives are defined in Sec. 173.53.
Flammable hazard - In general, functions by rapid
burning rather than detonation. Includes some
explosive devices such as special fireworks, flash
powders, etc. (Sec. 173.88)
Minimum hazard - Certain types of fireworks and
certain types of manufactured articles containing
restricted quantities of Class A and/or Class B
explosives as components. (Sec. 173.100)
A material designed for blasting which has been tested
in accordance with Sec. 173.114a(b). It must be so
insensitive that there is very little probability of:
(1) accidental explosion or (2) going from burning to
detonation. (Sec. 173.114a(b))
Compressed Gas - Any material or mixture having
in-the-container a pressure EXCEEDING 40 psia at 70ฐF,
OR a pressure exceeding 104 psia at 130ฐF; or any
liquid flammable material having a vapor pressure
exceeding 40 psia at 100ฐF. (Sec. 173.300(a))
Non-liquefied compressed gas is a gas (other than gas
in solution) which, under the charged pressure, is
entirely gaseous at a temperature of 70ฐF.
Liquefied compressed gas is a gas which, under the
charged pressure, is partially liquid at a temperature
of 70ฐF.
Any compressed gas meeting criteria as specified in
Sec. 173.300(b). This includes: lower flammability
limit, flammability limit range, flame projection, or
flame propagation.
Any compressed gas other than a flammable compressed
gas.
Any liquid having a flash point at or above 100ฐF and
below 200ฐF. Authorized flash point methods are
listed in Sec. 173.115(d). Exceptions are found in
Sec. 173.115(b).
Any liquid having a flash point below 100ฐF.
Authorized flash point methods are listed in Sec.
173.115(d). For exceptions, see Sec. 173.115(a).
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6-6
Flammable Solid
Organic Peroxide
Oxidizer
Poison A
Poison B
Corrosive Material
Pyroforic Liquid - Any liquid that ignites
spontaneously in dry or moist air at or below 130ฐF.
(Sec. 173.115(c))
Any solid material (other than an explosive) which is
liable to cause fires through friction or retained
heat from manufacturing or processing. It can be
ignited readily and burns so vigorously and
persistently, as to create a serious transportation
hazard. Included in this class are spontaneously
combustible and water-reactive materials. (Sec.
173.150))
Spontaneously Combustible Material (Solid) - A solid
substance (including sludges and pastes) which may
undergo spontaneous heating or self-burning under
normal transportation conditions. These materials may
increase in temperature and ignite when exposed to
air. (Sec. 171.8)
Water Reactive Material (Solid) - Any solid substance
(including sludges and pastes) which react with water
by igniting or giving off dangerous quantities of
flammable or toxic gases. (Sec. 171.8)
An organic compound containing the bivalent -0-0
structure. It may be considered a derivative of
hydrogen peroxide where one or more of the hydrogen
atoms have been replaced by organic radicals. It must
be classed as an organic peroxide unless it meets
certain criteria listed in Sec. 173.151(a).
A substance such as chlorate, permanganate, inorganic
peroxide, or a nitrate, that yields oxygen readily.
It accelerates the combustion of organic matter. (See
Sec. 173.151)
Extremely Dangerous Poisons - Poisonous gases or
liquids -- a very small amount of the gas, or vapor
of the liquid, mixed with air is dangerous to life.
(Sec. 173.326)
Less Dangerous Poisons - Substances, liquids or
solids (including pastes and semi-solids), other than
Class A or Irritating materials -- so toxic (or
presumed to be toxic) to man that they are a hazard to
health during transportation. (Sec. 173.381)
Any liquid or solid that causes visible destruction or
irreversible damage to human skin tissue. Also, it
may be a liquid that has a severe corrosion rate on
steel. (See Sec. 173.240(a) and (b) for details)
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6-7
There are also a number of substances identified in the DOT regulations as
"Forbidden" (49 CFR 172.101). While these materials may not be offered for
transportation, they may be present in facilities as components of
manufacturing, storage, or handling. These materials should be considered in
assessing the risks associated with the operation of the facility. In
addition, DOT specifies useful criteria for assessing unstable materials in 49
CFR 173.21 and 173.51.
The chemicals described above may create problems when stored or used near
other chemicals which could be affected or even released in the event of an
explosion, fire, reaction, or rupture due to corrosion. Communities are
advised to consider all chemicals that meet the DOT criteria as opposed to
relying on the DOT list exclusively. The DOT list typically only includes
chemicals that may be transported and as such may not include intermediates or
other chemicals that are explosive, flammable, reactive, or corrosive that may
never be transported off a site.
Note also that DOT has criteria and a list of chemicals identified as
poisons A and B. Chemicals in these categories are subject to DOT regulations
for transportation. All DOT poisons A and B may not be identified under EPA's
criteria for acutely toxic chemicals because EPA's criteria are for "very"
toxic chemicals and as such do not identify every toxic chemical that may need
to be regulated in transportation or any other activity. EPA has identified
"very" toxic chemicals to provide a focus for initial efforts in community
emergency preparedness and response planning. Therefore, criteria are not
provided that would identify every chemical that may be acutely toxic to human
beings.
-------
ERRATA
Chemical Emergency Preparedness Program: Interim Guidance
Corrections to the List of Acutely Toxic Chemicals (Appendix A)
1. Based on information analyzed during the development of
the profiles, the chemical listed as Phenarsazine oxide,
CAS number 58-36-6 should be listed as Phenoxarsine, 10,
lO'-oxidi, CAS number 58-36-6 (no change).
2. Based on additional analyses of the toxicity information
used to identify "Other Chemicals," the following changes are
made .
a. Ammonia, propylene oxide, sulphur dioxide, and vinyl
acetate monomer do not have acute toxicity measures that
strictly meet the criteria for listing as "Other Chemicals.
However, based on production capacity, toxicity, and
known danger, these chemicals remain listed as "Other
Chemicals." Only the reason for listing is changed.
b. Cumene, isopropanol, and methanol are removed from the
list based on the relatively lesser toxicity of these
chemicals compared to all of the acutely toxic chemicals
listed.
3. The CAS number for Nickel is incorrectly stated on the list
of acutely toxic chemicals. The CAS number 7440-02-2 should
be stated as 7440-02-0.
-------
APPENDIX A
ACUTELY TOXIC CHEMICALS
A.I ACUTELY IDXIC CHEMICALS
This appendix contains the list of chemicals identified by EPA
for which an acute toxicity measure has a value meeting the criteria stated
in Chapter 6. These very toxic chemicals are listed alphabetically by
cornnan chemical name. The corresponding Chemical Abstract Service
(CAS) number is provided for each name. There are 379 chemicals on the
list.
Following the CAS Number list are two indices of the multiple names
used for each acutely toxic chemical. The first index lists the common
chemical name, the CAS name if different from the common name, and some
synonyms for each chemical. All names on the first index are in
alphabetical order. The CAS number is listed for each name on this index.
Synonyms were selected by EPA on the basis of common use. The second
index lists in CAS number order all names on the indices.
Long naines for chemicals on all lists are truncated. Where the
complete name is truncated, three dots follow the last character of
the name.
Some of the acutely toxic chemicals have been identified through
EPA's Premanufacture Notice (PMN) program for new chemicals. Information
on some of these PMN chemicals cannot be published because of requirements
for EPA to maintain confidential business information (CBI) restrictions.
Such PMN chemicals are listed by their PMN number. The index contains
the PMN number and a non-CBI generic name for one such chemical.
One hundred forty-one chemicals names are preceded by an asterisk.
The asterisk identifies chemicals that EPA could not verify as being
manufactured or imported for commercial purposes as defined in the
Toxic Substances Control Act or as being manufactured as a pesticide
within the three years prior to October 1, 1985. Verification of
conmercialization was performed by an EPA expert panel. Production was
verified if the panel:
1. Recalled published information that the candidate is in commercial
production; or
2. Recalled recent advertisements or promotional materials which
substantiate commercial production; or
3. Recalled name(s) of one or more manufacturers, importers, processors,
or users; or
-------
A-2
4. Identified listings in Chemical Marketing Reporter, Chemical &
Engineering News, Chemical Week, SRI International's Chemical Economics
Handbook, or other publications or data bases: or
5. Contacted manufacturers, importers, suppliers, processors, or users
who confirmed manufacture or importation since October 1, 1982; or
6. Confirmed Notice of Commencement of manufacture was received by EPA
on or since October 1, 1982.
A.2 OTHER CHEMICALS
In addition to the identification of the acutely toxic chemicals meeting
the criteria stated in Chapter 6, EPA has identified some other chemicals
which, because of their high production capacity combined with their
acute toxicity, should be considered as chemicals of concern to emergency
preparedness and response planning. A list of these chemicals entitled,
"Other Chemicals" follows the index.
These other chemicals were selected by the following process.
1. Identify other chemical candidates from the high production capacity
chemicals listed in the SRI International publication, 1985 Directory
of Chemical Producers, United States of America, pp. 388-389 or from
the World Bank list Group B: Other Toxic Substances.
2. From the candidates identified in 1 above, select for listing
chemicals whose acute toxicity measures have values egual to the
World Bank and European Community criteria for other toxic substances.
These criteria are:
Dermal Median Lethal Dose (LDso) less than or egual to 400 mg/kg
or
Oral Median Lethal Dose (LDso) Less than or egual to 200 mg/kg
or
Inhalation Median Lethal Concentration Less than or egual to 2 mg/L
(LC50)
The data selection rules described in Chapter 6 were used.
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A-3
Phosgene, bromine, and carbon disulfide do not have acute toxicity
measures that strictly meet the criteria stated in 2 above. However, based
on production capacity, known danger, and identification of the chemicals
as other toxic substances by the World Bank and European Community these
chemicals are placed on the list of "Other Chemicals."
It should be emphasized that a number of chemicals on the list of Other
Chemicals are widely used in commerce with little danger of serious accidents
resulting in acute toxic effects. For example, solutions of hydrogen peroxide
are commonly found in peoples' medicine cabinets and when used properly present
little potential for toxic effects. However, where large volumes of concentrated
substance are handled, accidental release would be of concern. This emphasizes
the need to apply the site specific guidance in determining whether the material
is of concern for emergency preparedness planning.
A. 3 CHEMICAL PROFILES
For each acutely toxic chemical and each other chemical listed an EPA
Chemical Profile was prepared and is available from EPA. An EPA Chemical
Profile is a collection of information on the chemical identity, hazardous
identity, physical/chemical characteristics, fire and explosion hazard,
reactivity, health hazard, use, and precautions for handling and use of the
chemical. The information is presented in the format that conforms as
closely as possible to the Occupational Safety and Health Administration
(OSHA) recommended format for a Material Safety Data Sheet (MSDS). An EPA
Chemical Profile follows.
-------
A-4
CAS Registry Number: 108-23-6
Page 1 of 3
EPA CHEMICAL PROFILE
Date: October 9, 1985
Revision:
CHEMICAL IDENTITY -- ISOPROPYL CHLOROFORMATE
CAS Registry Number: 108-23-6
Synonyms: Carbonochloride Acid, 1-Methylethyl Ester; Carbonochloridic
Acid, 1-Methylethyl Ester; Chloroformic Acid Isopropyl Ester; Formic Acid,
Chloro-, Isopropyl Ester; Isopropyl Chlorocarbonate; Isopropyl Chloromethanoate
Chemical Formula: C.H.CIO.
47 2
Molecular Weight: 122.55
SECTION I -- HAZARDOUS INGREDIENTS/IDENTITY INFORMATION
OSHA PEL: Not Found
ACGIH TLV: Not Found
IDLH: Not Found
Other Limits Recommended: Toxicity information: LCn inhalation
low
(rat) 1 mg/liter/5 hours (*NIOSH/RTECS 1985)
SECTION II -- PHYSICAL/CHEMICAL CHARACTERISTICS
Boiling Point: 220ฐF, 104.6ฐC at 761 mmHg (*Weast 1979)
Specific Gravity (H 0=1): 1.08 (-Patty 1963)
Vapor Pressure (mmHg): Not Found
Melting Point: Not Found
Vapor Density (AIR=1): 4.2 (''-Patty 1963)
Evaporation Rate (Butyl acetate=l): Not Found
Solubility in Water: Insoluble in water (*Weast 1979)
Appearance and Odor: Colorless liquid (*Hawley 1977^
-------
A-5
CAS Registry Number: 108-23-6
Page 2 of 3
ISOPROPYL CHLOROFORMATE
SECTION III -- FIRE AND EXPLOSION HAZARD DATA
Flash Point (Method Used): 60.1ฐF, 15.6ฐC (-Clayton and Clayton
1981-1982)
Flammable Limits: Flammable; may be ignited by heat, sparks or flame
(DOT 1984, Guide 29)
LEL: Not Found
DEL: Not Found
Extinguishing Methods: Keep unnecessary people away and isolate hazard
area. Stay upwind and keep out of low areas. Wear self-contained
(positive pressure if available) breathing apparatus and full protective
clothing. For small fires, use dry chemical, carbon dioxide, water spray
or foam. For large fires, use water spray, fog or foam. Do not get water
inside container. Cool containers exposed to flame with water until well
after fire is out. Withdraw immediately in case of rising sound from
venting safety device or any discoloration of tank due to fire (DOT 1984,
Guide 29).
Special Fire Fighting Procedures: Isolate for 1/2 mile in all
directions if tank car or truck is involved in fire (DOT 1984, Guide 29).
Unusual Fire and Explosion Hazards: Extremely dangerous; this chemical
has exploded while stored in refrigerator ("Sax 1979). Vapor explosion
hazard indoors, outdoors or in sewers. Runoff to sewer may create fire or
explosion hazard (DOT 1984, Guide 29).
SECTION IV -- REACTIVITY DATA
Stability: Unstable: Yes (*Patty 1963)
Stable:
Conditions to Avoid: Avoid phosgene (-Sax 1979)
Incompatibility (Materials to Avoid): Reacts violently with phosgene
(*Sax 1979).
Hazardous Decomposition or Byproducts: It is corrosive and hydrolyzes
in the presence of water or moist air ("Patty 1963).
Hazardous Polymerization: May Occur: Not Found
May Not Occur: Not Found
Conditions to Avoid: Not Found
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A-6
CAS Registry Number: 108-23-6
Page 3 of 3
ISOPROPYL CHLOROFORMATE
SECTION V -- HEALTH HAZARD DATA
Routes of Entry: Inhalation: Yes (Sax 1984, p. 1657)
Skin: Yes (Sax 1984, p. 1657)
Ingestion: Yes (Sax 1979, p. 1657)
Health Hazards (Acute, Delayed, and Chronic): Acute: highly toxic by
inhalation, ingestion and skin absorption (Sax 1984, p. 1657). Delayed:
can produce delayed pulmonary edema (2-24 hours after exposure) similar to
that produced by phosgene (-Patty 1963; *Rumack 1975 to Present).
Inhalation of material may cause death or permanent injury ("'Sax 1979).
Signs and Symptoms of Exposure: Eye irritation, irritation of upper
respiratory tract and surface burns have been observed. Eye irritation
may persist after exposure ceases, and skin sensitization may occur
(*Patty 1963). Inhalation exposures at elevated concentrations cause
death by immediate lung damage, lower concentrations cause difficult
breathing, collapse, and convulsions (Clayton and Clayton 1981-1982, p.
2390).
Medical Conditions Generally Aggravated by Exposure: Not Found
Emergency and First Aid Procedures: Move victim to fresh air. Obtain
emergency medical care immediately. Remove and isolate contaminated
clothing and shoes at the site. In case of contact with material,
immediately flush skin or eyes with running water for at least 15 minutes
(DOT 1984, Guide 29).
SECTION VI -- USE INFORMATION
Used as a chemical intermediate for free-radical polymerization initiators
and in organic synthesis (*Hawley 1977).
SECTION VII -- PRECAUTIONS FOR SAFE HANDLING AND USE
(Steps to be Taken in Case Material is Released or Spilled)
In case of spills or leaks, shut off ignition sources and keep away
flares, smoking or flames. Do not touch spilled material. Use water to
reduce vapors but do not get water inside containers. Take up small
spills with sand or other noncombustible absorbent material and place in
containers for later disposal. For large spills, dike far ahead of spill
for later disposal (DOT 1984, Guide 29).
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Page No.
11/01/85
Acutely Toxic Chemicals
Alphabetic List of Common Names and CAS Numbers
Common Name
CAS Number
Acetone cyanohydrin 00075-86-5
* Acetone thiosemicarbazide 01752-30-3
Acrolein 00107-02-8
Acrylyl chloride 00814-68-6
Aldicarb 00116-06-3
Aldrin 00309-00-2
Allyl alcohol 00107-18-6
Allylamine 00107-11-9
Aluminum phosphide 20859-73-8
* Aminopterin 00054-62-6
* Amiton 00078-53-5
* Amiton oxalate 03734-97-2
Ammonium chloroplatinate 16919-58-7
* Amphetamine 00300-62-9
* Aniline, 2,4,6-trimethyl- 00088-05-1
Antimony pentafluoride 07783-70-2
* Antimycin A 01397-94-0
Antu 00086-88-4
* Arsenic pentoxide 01303-28-2
Arsenous oxide 01327-53-3
Arsenous trichloride 07784-34-1
Arsine 07784-42-1
* Azinphos-ethyl 02642-71-9
Azinphos-methyl 00086-50-0
* Bacitracin 01405-87-4
Benzal chloride 00098-87-3
Benzenamine, 3-(trifluoromethyl)- 00098-16-8
Benzene, l-(chloromethyl)-4-nitro- 00100-14-1
* Benzenearsonic acid 00098-05-5
Benzenesulfonyl chloride 00098-09-9
Benzotrichloride 00098-07-7
Benzyl chloride 00100-44-7
Benzyl cyanide 00140-29-4
* Bicyclo[2.2.l]heptane-2-carbonitrile, 5-chloro... 15271-41-7
* Bis(chloromethyl) ketone 00534-07-6
* Bitoscanate 04044-65-9
Boron trichloride 10294-34-5
Boron trifluoride 07637-07-2
Boron trifluoride compound with methyl ether (1:1) 00353-42-4
Bromadiolone 28772-56-7
Butadiene 00106-99-0
Butyl isovalerate 00109-19-3
Butyl vinyl ether 00111-34-2
C.I. basic green 1 00633-03-4
Cadmium oxide 01306-19-0
Cadmium stearate 02223-93-0
Calcium arsenate 07778-44-1
Camphechlor 08001-35-2
* Cantharidin 00056-25-7
* Carbachol chloride 00051-83-2
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Page No.
11/01/85
Acutely Toxic Chemicals
Alphabetic List of Common Names and CAS Numbers
Common Name
CAS Number
* Carbamic acid, methyl-, 0-[[(2,4-dimethyl... 26419-73-8
Carbofuran 01563-66-2
Carbophenothion 00786-19-6
Carvone 02244-16-8
* Chlordane 00057-74-9
Chlorfenvinfos 00470-90-6
Chlorine 07782-50-5
* Chlormephos 24934-91-6
Chlormequat chloride 00999-81-5
Chloroacetaldehyde 00107-20-0
Chloroacetic acid 00079-11-8
Chloroethanol 00107-07-3
* Chloroethyl chloroformate 00627-11-2
Chloromethyl ether 00542-88-1
* Chloromethyl methyl ether 00107-30-2
Chlorophacinone 03691-35-8
* Chloroxuron 01982-47-4
* Chlorthiophos 21923-23-9
Chromic chloride 10025-73-7
Cobalt 07440-48-4
Cobalt carbonyl 10210-68-1
* Cobalt, [[2,2'-[l,2-ethanediylbis(nitrilomethy... 62207-76-5
* Colchicine 00064-86-8
Coumafuryl 00117-52-2
Coumaphos 00056-72-4
* Coumatetralyl 05836-29-3
Cresylic acid 00095-48-7
* Crimidine 00535-89-7
Crotonaldehyde 00123-73-9
Crotonaldehyde 04170-30-3
Cyanogen bromide 00506-68-3
Cyanogen iodide 00506-78-5
* cyanophos 02636-26-2
Cyanuric fluoride 00675-14-9
Cycloheximide 00066-81-9
Cyclopentane 00287-92-3
Decaborane(14) 17702-41-9
Demeton 08065-48-3
* Demeton-S-methyl 00919-86-8
* Dialifos 10311-84-9
Diborane 19287-45-7
Dibutyl phthalate 00084-74-2
Dichlorobenzalkonium chloride 08023-53-8
Dichloroethyl ether 00111-44-4
Dichloromethylphenylsilane 00149-74-6
Dichlorvos 00062-73-7
Dicrotophos 00141-66-2
Diepoxybutane 01464-53-5
Diethyl chlorophosphate 00814-49-3
Diethyl-p-phenylenediamine 00093-05-0
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Page No.
11/01/85
Acutely Toxic Chemicals
Alphabetic List of Common Names and CAS Numbers
Common Name
CAS Number
* Diethylcarbamazine citrate
* Digitoxin
Diglycidyl ether
* Digoxin
* Dimefox
Dimethoate
Dimethyl phosphorochloridothioate
Dimethyl phthalate
Dimethyl sulfate
Dimethyl sulfide
Dimethyl-p-phenylenediamine
Dimethyldichlorosilane
Dimethylhydrazine
* Dimetilan
Dinitrocresol
Dinoseb
* Dinoterb
Dioctyl phthalate
Dioxathion
Dioxolane
Diphacinone
Diphosphoramide, octamethyl-
Disulfoton
Dithiazanine iodide
* Dithiobiuret
EPN
* Emetine, dihydrochloride
Endosulfan
* Endothion
Endrin
* Ergocalciferol
* Ergotamine tartrate
* Ethanesulfonyl chloride, 2-chloro-
* Ethanol, 1,2-dichloro-, acetate
Ethion
Ethoprophos
* Ethyl thiocyanate
* Ethylbis(2-chloroethyl)amine
* Ethylene fluorohydrin
Ethylenediamine
Ethyleneimine
* Ethylmercuric phosphate
Fenamiphos
Fenitrothion
Fensulfothion
* Fluenetil
Fluorine
Fluoroacetamide
* Fluoroacetic acid
Fluoroacetyl chloride
01642-
00071-
02238-
20830-
00115-
00060-
02524-
00131-
00077-
00075-
00099-
00075-
00057-
00644-
00534-
00088-
01420-
00117-
00078-
00646-
00082-
00152-
00298-
00514-
00541-
02104-
00316-
00115-
02778-
00072-
00050-
00379-
01622-
10140-
00563-
13194-
00542-
00538-
00371-
00107-
00151-
02235-
22224-
00122-
00115-
04301-
07782-
00640-
00144-
00359-
54-2
63-6
07-5
75-5
26-4
51-5
03-0
11-3
78-1
18-3
98-9
78-5
14-7
64-4
52-1
85-7
07-1
84-0
34-2
06-0
66-6
16-9
04-4
73-8
53-7
64-5
42-7
29-7
04-3
20-8
14-6
79-3
32-8
87-1
12-2
48-4
90-5
07-8
62-0
15-3
56-4
25-8
92-6
14-5
90-2
50-2
41-4
19-7
49-0
06-8
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Page No.
11/01/85
Acutely Toxic Chemicals
Alphabetic List of Common Names and CAS Numbers
Common Name
CAS Number
* Fluorouracil 00051-21-8
Fonofos 00944-22-9
Formaldehyde cyanohydrin 00107-16-4
* Formetanate 23422-53-9
* Formothion 02540-82-1
* Formparanate 17702-57-7
* Fosthietan 21548-32-3
* Fuberidazole 03878-19-1
Furan 00110-00-9
Gallium trichloride 13450-90-3
Hexachlorocyclopentadiene 00077-47-4
* Hexachloronaphthalene 01335-87-1
Hexamethylenediamine, N,N'-dibutyl- 04835-11-4
Hydrazine 00302-01-2
Hydrocyanic acid 00074-90-8
Hydrogen fluoride 07664-39-3
Hydrogen selenide 07783-07-5
* Indomethacin 00053-86-1
Iridium tetrachloride 10025-97-5
Iron, pentacarbonyl- 13463-40-6
* Isobenzan 00297-78-9
Isobutyronitrile 00078-82-0
Isocyanic acid, 3,4-dichlorophenyl ester 00102-36-3
* Isodrin 00465-73-6
* Isofluorphate 00055-91-4
Isophorone diisocyanate 04098-71-9
Isopropyl chloroformate 00108-23-6
* Isopropyl formate 00625-55-8
* Isopropylmethylpyrazolyl dimethylcarbamate 00119-38-0
Lactonitrile 00078-97-7
* Leptophos 21609-90-5
* Lewisite 00541-25-3
* Lindane 00058-89-9
Lithium hydride 07580-67-8
Malononitrile 00109-77-3
Manganese, tricarbonyl methylcyclopentadienyl 12108-13-3
* Mechlorethamine 00051-75-2
* Mephosfolan 00950-10-7
Mercuric acetate 01600-27-7
Mercuric chloride 07487-94-7
Mercuric oxide 21908-53-2
Mesitylene 00108-67-8
* Methacrolein diacetate 10476-95-6
* Methacrylic anhydride 00760-93-0
Methacrylonitrile 00126-98-7
Methacryloyl chloride 00920-46-7
Methacryloyloxyethyl isocyanate 30674-80-7
Methamidophos 10265-92-6
* Methanesulfonyl fluoride 00558-25-8
* Methidathion 00950-37-8
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Page No.
11/01/85
Acutely Toxic Chemicals
Alphabetic List of Common Names and CAS Numbers
Common Name
CAS Number
Methiocarb
Methomyl
* Methoxyethylmercuric acetate
Methyl 2-chloroacrylate
Methyl chloroformate
Methyl disulfide
Methyl isocyanate
* Methyl isothiocyanate
Methyl mercaptan
* Methyl phenkapton
Methyl phosphonic dichloride
* Methyl thiocyanate
Methyl vinyl ketone
Methylhydraz ine
* Methylmercuric dicyanamide
Methyltrichlorosilane
* Metolcarb
* Mevinphos
* Mexacarbate
* Mitomycin C
Monocrotophos
* Muscimol
* Mustard gas
Nickel
Nickel carbonyl
Nicotine
* Nicotine sulfate
Nitric acid
Nitric oxide
* Nitrocyclohexane
Nitrogen dioxide
Nitrosodimethylamine
* Norbormide
* Organorhodium complex
* Orotic acid
Osmium tetroxide
* Ouabain
Oxamyl
Oxetane, 3,3-b i s(chloromethy1)
* Oxydisulfoton
Ozone
Paraquat
* Paraquat methosulfate
Parathion
Parathion-methyl
Paris green
* Pentaborane
Pentachloroethane
Pentachlorophenol
* Pentadecylamine
02032-65-7
16752-77-5
00151-38-2
00080-63-7
00079-22-1
00624-92-0
00624-83-9
00556-61-6
00074-93-1
03735-23-7
00676-97-1
00556-64-9
00078-94-4
00060-34-4
00502-39-6
00075-79-6
01129-41-5
07786-34-7
00315-18-4
00050-07-7
06923-22-4
02763-96-4
00505-60-2
07440-02-2
13463-39-3
00054-11-5
00065-30-5
07697-37-2
10102-43-9
01122-60-7
10102-44-0
00062-75-9
00991-42-4
PMN-82-147
00065-86-1
20816-12-0
00630-60-4
23135-22-0
00078-71-7
02497-07-6
10028-15-6
01910-42-5
02074-50-2
00056-38-2
00298-00-0
12002-03-8
19624-22-7
00076-01-7
00087-86-5
02570-26-5
-------
Page No.
11/01/85
Acutely Toxic Chemicals
Alphabetic List of Common Names and CAS Numbers
Common Name
CAS Number
0-(4-nitrophenyl.
Peracetic acid
Perchloror.'.ethylmercaptan '
* Phenarsaz.uiie oxide
Phenol
* Phenol, 2,2l-thiobis(4-chloro-6-methyl-
Phenol, 2,2'-thiobis[4,6-dichloro-
* Phenol, 3-(l-methylethyl)-, methylcarbamate
* Phenyl dichloroarsine
Phenylhydrazine hydrochloride
Phenylmercury acetate
Phenylsilatrane
* Phenylthiourea
Phorate
* Phosacetim
* Phosfolan
Phosmet
Phosphamidon
Phosphine
* Phosphonothioic acid, methyl-,
* Phosphonothioic acid, methyl-, 0-ethyl O-[4-...
* Phosphonothioic acid, methyl-, S-[2-[bis...
* Phosphoric acid, dimethyl 4-(methylthio)phenyl..
Phosphorous trichloride
Phosphorus
Phosphorus oxychloride
Phosphorus pentachloride
Phosphorus pentoxide
* Phylloquinone
* Physostigmine
* Physostigmine, salicylate (1:1)
* Picrotoxin
Piperidine
* Piprotal
* Pirimifos-ethyl
Platinous chloride
Platinum tetrachloride
* Potassium arsenite
Potassium cyanide
Potassium silver cyanide
* Promecarb
Propargyl bromide
Propiolactone, .beta.-
Propionitrile
* Propionitrile, 3-chloro-
Propyl chloroformate
Propylene glycol, allyl ether
Propyleneimine
* Prothoate
Pseudocumene
Pyrene
00079-
00594-
00058-
00108-
04418-
00097-
00064-
00696-
00059-
00062-
02097-
00103-
00298-
04104-
00947-
00732-
13171-
07803-
02665-
02703-
50782-
03254-
07719-
07723-
10025-
10026-
01314-
00084-
00057-
00057-
00124-
00110-
05281
23505
10025
13454
10124
00151
00506
02631
00106
00057
00107
00542
00109
01331
00075
02275
00095
00129
21-0
42-3
36-6
95-2
-66-0
-18-7
-00-6
-28-6
-88-1
-38-4
-19-0
-85-5
-02-2
-14-7
-02-4
-11-6
-21-6
-51-2
-30-7
-13-1
-69-9
-63-5
-12-2
-14-0
-87-3
-13-8
-56-3
-80-0
-47-6
-64-7
-87-8
-89-4
-13-0
-41-1
-65-7
-96-1
-50-2
-50-8
-61-6
-37-0
-96-7
-57-8
-12-0
-76-7
-61-5
-17-5
-55-8
-18-5
-63-6
-00-0
-------
Page No.
11/01/85
Acutely Toxic Chemicals
Alphabetic List of Common Names and CAS Numbers
Common Name
CAS Number
Pyridine, 2-methyl-5-vinyl- 00140-76-1
Pyridine, 4-amino- 00504-24-5
* Pyridine, 4-nitro-, 1-oxide 01124-33-0
* Pyriminil 53558-25-1
Rhodium trichloride 10049-07-7
* Salcomine 14167-18-1
* Sarin 00107-44-8
* Selenium oxychloride 07791-23-3
Selenous acid 07783-00-8
Semicarbazide hydrochloride 00563-41-7
Silane, (4-aminobutyl)diethoxymethyl- 03037-72-7
* Sodium anthraquinone-1-sulfonate 00128-56-3
Sodium arsenate 07631-89-2
Sodium arsenite 07784-46-5
Sodium azide (Na(N3)) 26628-22-8
Sodium cacodylate 00124-65-2
Sodium cyanide (Na(CN)) 00143-33-9
Sodium fluoroacetate 00062-74-8
Sodium pentachlorophenate 00131-52-2
* Sodium selenate 13410-01-0
Sodium selenite 10102-18-8
* Sodium tellurite 10102-20-2
Strychnine 00057-24-9
Strychnine, sulfate 00060-41-3
Sulfotep 03689-24-5
* Sulfoxide, 3-chloropropyl octyl 03569-57-1
Sulfur tetrafluoride 07783-60-0
Sulfur trioxide 07446-11-9
Sulfuric acid 07664-93-9
* TEPP 00107-49-3
* Tabun 00077-81-6
Tellurium 13494-80-9
Tellurium hexafluoride 07783-80-4
Terbufos 13071-79-9
Tetraethyllead 00078-00-2
* Tetraethyltin 00597-64-8
Tetranitromethane 00509-14-8
Thallic oxide 01314-32-5
* Thallous carbonate 06533-73-9
Thallous chloride 07791-12-0
* Thallous malonate 02757-18-8
* Thallous sulfate 07446-18-6
* Thallous sulfate 10031-59-1
* Thiocarbazide 02231-57-4
Thiocyanic acid, (2-benzothiazolylthio)methyl... 21564-17-0
* Thiofanox 39196-18-4
* Thiometon 00640-15-3
* Thionazin 00297-97-2
Thiophenol 00108-98-5
Thiosemicarbazide 00079-19-6
-------
Page No.
11/01/85
Acutely Toxic Chemicals
Alphabetic List of Common Names and CAS Numbers
Common Name
CAS Number
* Thiourea, (2-chlorophenyl)- 05344-82-1
* Thiourea, (2-methylphenyl)- 00614-78-8
Titanium tetrachloride 07550-45-0
Toluene 2,4-diisocyanate 00584-84-9
Toluene 2,6-diisocyanate 00091-08-7
* Triamiphos 01031-47-6
* Triazofos 24017-47-8
Trichloro(chloromethyl)silane 01558-25-4
Trichloro(dichlorophenyl)silane 27137-85-5
Trichloroacetyl chloride 00076-02-8
Trichloroethylsilane 00115-21-9
* Trichloronate 00327-98-0
Trichlorophenylsilane 00098-13-5
Trichlorphon 00052-68-6
Triethoxysilane 00998-30-1
Trimethylchlorosilane 00075-77-4
* Trimethylolpropane phosphite 00824-11-3
Trimethyltin chloride 01066-45-1
Triphenyltin chloride 00639-58-7
* Tris(2-chloroethyl)amine 00555-77-1
Valinomycin 02001-95-8
Vanadium pentoxide 01314-62-1
Vinylnorbornene 03048-64-4
Warfarin 00081-81-2
Warfarin sodium 00129-06-6
Xylylene dichloride 28347-13-9
Zinc phosphide 01314-84-7
* Zinc, dichloro[4,4-dimethyl-5-[[[(methylamino)... 58270-08-9
trans-l,4-Dichlorobutene 00110-57-6
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OTHER CHEMICALS
NAME CAS NUMBER
Acrylamide 79-06-1
Acrylonitrile 107-13-1
Adiponitrile 111-69-3
Anmonia 7664-41-7
Aniline 62-53-3
Bromine 7726-95-6
Carbon disulfide 75-15-0
Chloroform 67-66-3
Cumene 98-82-8
Cyclohexylamine 108-91-8
Epichlorohydrin 106-89-8
Ethylene oxide 75-21-8
Formaldehyde 50-00-0
Hydrochloric acid 7647-01-0
Hydrogen peroxide 7722-84-1
Hydrogen sulfide 7783-06-4
Hydroquinone 123-31-9
Isopropanol 67-63-0
Methanol 67-56-1
Methyl bromide 74-83-9
Nitrobenzene 98-95-3
Phosgene 75-44-5
Propylene oxide 75-56-9
Sulfur dioxide 7446-09-5
Tetramethyl lead 75-74-1
Vinyl acetate monomer 108-05-4
-------
APPENDIX B
GLOSSARY
Accident Site
Acutely Toxic
Chemicals
By-Product
Chemical Process
Combustion Product
Command Post
Contingency Plan
Decompos it ion
Product
Disposal
Emergency
Evacuation
Hazard
The location of an unexpected occurrence, failure, or
loss, either at a plant or along a transport route,
resulting in a release of hazardous materials.
Chemicals which can cause both severe short- and
long-term health effects after a single, brief
exposure (short duration). These chemicals can cause
damage to living tissue, impairment of the central
nervous system, severe illness or in extreme cases,
death when ingested, inhaled, or absorbed through the
skin.
Material produced or generated in an industrial process
in addition to the principal product.
A particular method of manufacturing or making a
chemical, usually involving a number of steps or
operations.
Material produced or generated during the burning or
oxidation of a material.
Facility at a safe distance upwind from an accident
site, where the on-scene coordinator, responders and
technical representatives can make response decisions,
deploy manpower and equipment, maintain liaison with
media, and handle communications.
A document developed to identify and catalog all the
elements required to respond to an emergency, to define
responsibilities and specific tasks, and to serve as a
response guide.
Material produced or generated by the physical or
chemical degradation of a parent material.
The removal of waste material to a site or facility
specifically designed and permitted to receive such
wastes.
A situation created by an accidental release or spill
of hazardous chemicals which poses a threat to the
safety of workers, residents, the environment, or
property.
Removal of residents from an area of danger.
Any situation that has the potential for doing
damage to life, property, and/or the environment.
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B-2
GLOSSARY (continued)
Hazardous Chemical
Off-Scene Support
On-Scene Coordinator
Plume
Response
Risk
Simulation
Site/Facility
Special Populations
Storage
Transfer
Transport
A chemical which is explosive, flammable, poisonous,
corrosive, reactive, or radioactive and requires
special care in handling because of the hazards it
poses to public health and the environment.
Assistance (via telephone, radio, or computer) from
technical persons, agencies, shippers, responders,
etc. not at the accident site.
The official in charge of a Federally financed
response action.
A vapor cloud formation which has shape and buoyancy.
The efforts to minimize the risks created in an
emergency by protecting the people, the environment,
and property and returning the scene to normal
pre-emergency conditions.
The probability that damage to life, property,
and/or the environment will occur if a hazard
manifests itself.
A mock accident or release set up to test emergency
response methods or for use as a training tool.
Any location where acutely toxic chemicals are
manufactured, processed, stored, handled, used, or
disposed; in short, any place where these chemicals
may be found. Communities should be aware that
chemicals are frequently found at places other than
industrial sites.
Concentrations of people in one area or building for
a special purpose or in certain circumstances (e.g.,
schools, hospitals, nursing homes, orphanages,
shopping centers).
Methods of keeping raw materials, finished goods, or
products while awaiting use, shipment, or consumption.
Loading and unloading of chemicals between transport
vehicles and storage vessels, and sending chemicals
via pipes between storage vessels and process reactors,
To carry or convey goods from one place to another
using ships, trucks, trains, pipelines, or airplanes.
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B-3
GLOSSARY (continued)
Transport Mode Method of transportation: highway (trucks); rail
(trains); water (ships/barges); pipelines; air
(planes).
Vapor Dispersion The movement of vapor clouds in air due to wind,
gravity spreading, and mixing.
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APPENDIX C
ACRONYMS
AAR/BOE Association of American Railroads/Bureau of Explosives
AIChE American Institute of Chemical Engineers
ASME American Society of Mechanical Engineers
ASSE American Society of Safety Engineers
CDC Centers for Disease Control
CHEMTREC Chemical Transportation Emergency Center (800/424-9300,
District of Columbia: 202-483-7616)
CHLOREP Chlorine Emergency Plan
CHRIS/HAGS Chemical Hazards Response Information System/Hazard Assessment
Computer System
EPA Environmental Protection Agency
ER Emergency Response
FEMA Federal Emergency Management Agency
HMTC Hazardous Materials Technical Center
IDLH Immediately Dangerous to Life or Health
IEMS Integrated Emergency Management System
NIOSH National Institute for Occupational Safety and Health
NRC National Response Center (800-424-8802, District of Columbia:
202-426-2675)
OHMTADS Oil and Hazardous Materials Technical Assistance Data System
OSC On-Scene Coordinator
OSHA Occupational Safety and Health Administration
PSTN Pesticide Safety Team Network
USCG United States Coast Guard
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APPENDIX D
QUANTITY DETERMINATION METHOD
This appendix describes a method that can be used to assign priorities for
assessing the potential risk from a variety of separate, local activities
involving acutely toxic chemicals (see Section 3.3B). This method is not
designed to provide an upper exposure limit for the release of a certain
amount of an acutely toxic chemical, nor is it designed to be used to
establish a "maximum allowable" release amount for setting limits for storage
or release under an ordinance or regulation. The intended use of this
methodology is as a screening tool to help the work group determine which
sites in their community pose the greatest potential for causing death and
irreversible injury should an accidental release of an acutely toxic chemical
occur. Communities are invited to contact their Regional Office of EPA for
more detailed assistance on airborne contaminant modelling for purposes of
developing specific levels, target populations, or evacuation areas as part of
contingency planning. More sophisticated models that account for the specific
area meteorology, topography, and specific physical/chemical properties of the
acutely toxic chemical may be available for these purposes.
D.I BACKGROUND
EPA believes that communities may need assistance in determining whether
enough of an acutely toxic chemical is present on a site to cause death or
irreversible injuries in the community, if an accidental release occurred.
Many mathematical models (which require computer capabilities to run)
available for determining the downwind concentration of a release into the air
could be used for this determination. However, these models are very complex,
not easily used, and not all are appropriate for accidental releases into
air. In addition, each site is unique in topography, weather conditions, and
distance to the community, and each chemical has its own unique
characteristics and behavior.
Since it is not reasonable to expect each community to have the expertise
to develop a model simulation for every situation that might occur, EPA
developed this method for use as a screening tool. Using an EPA model known
as INPUFF (which simulates dispersion of a puff of vapor from an instantaneous
source), EPA performed an analysis based on reasonable worst case conditions
(like low wind speeds, ground level release, limited mixing, and ambient
temperature conditions) for an accidental release occurring at any site.
(INPUFF is part of EPA's airborne contaminant modelling system.) Model
conditions were set to simulate a rupture or large spill from which a large
cloud of material would be quickly generated. The highest 30 minute average
concentration at downwind distances ranging from 100 feet to 10 miles was
calculated using the model for airborne releases associated with various
quantities of chemicals over varying meteorological conditions. Other
assumptions in the model include a release point 3 feet above the ground at
ambient temperature (higher temperatures cause the vapor cloud to rise and
result in lower concentrations in the air), and a release time of 1 minute
duration. The one minute release was selected because it generated the
highest concentration in air per quantity of chemical released. The results
of these model simulations were arranged in the form of a graph that can be
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D-2
easily used. The method for using the graph is described below in Section
D.3. Note, however, that the method has significant limitations and remember
that the quantity determination should be made in light of the kind of
activities at each particular site associated with acutely toxic chemicals.
The graph is useful for determining the quantity needed to reach a level of
concern as the result of a catastrophic release of a gas, volatile liquid, or
chemicals under high temperature or pressure that can become quickly airborne
under accident conditions. This method tends to overestimate the
concentration (i.e., less quantity needed to reach IDLH) for those situations
where the chemical has low volatility (high boiling point) or is stored under
ambient conditions. The method may underestimate the concentration (i.e.,
more quantity needed to reach IDLH) for very dense vapors like chlorine or
ammonia that may behave differently upon accidental release. The graph is
designed to be as conservative as possible to allow the work group to focus on
the situations most likely to cause death or irreversible health effects.
D.2 METHODOLOGY
To use the graph to determine whether there is enough acutely toxic
chemical on a site to generate airborne concentrations that could reach a
level of concern beyond the site fence line, three pieces of information are
needed: (1) the distance from the point where the acutely toxic chemical
could be released on site to the nearest site fence line or the nearest
population; (2) the molecular weight of the acutely toxic chemical; and (3)
the level of concern for the chemical. The distance can be determined from
maps or from discussions with a technical contact at the site. The molecular
weight of the chemical may be found on the chemical profile sheet or, if the
chemical is not on the EPA list, from the site technical contact.
Several health effects levels are generally available for use as the level
of concern. To identify only those sites where accidental releases of acutely
toxic chemicals have the potential to result in death or irreversible injury,
the level of concern should be taken as the IDLH level (Immediately Dangerous
to Life and Health). This level (established by the National Institute for
Occupational Safety and Health) represents the maximum level to which a
healthy worker can be exposed for 30 minutes and escape without suffering
irreversible health effects or escape impairing symptoms. The chemical
profiles will include IDLH values, when available.
There are problems inherent in using the IDLH as a measure of the level of
concern:
The IDLH is based upon the response of the healthy,
male worker population and does not take into account
exposure of more sensitive individuals such as the
elderly, children, or people with various health
problems;
The IDLH is based upon a 30 minute exposure time frame
which may not be realistic for accidental airborne
releases;
IDLH values do not exist for all acutely toxic
chemicals; and
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D-3
By using the IDLH as the level of concern, this
methodology may not identify all quantities of concern
that could result in serious but reversible injury.
Thus, IDLH values used in this way do not necessarily indicate "safe levels,"
and a working group using them for screening purposes may wish to make
appropriate allowances, e.g., for sensitive populations (such as the elderly)
that may live close to the site boundary.
If the acutely toxic chemical you are evaluating does not have an IDLH in
the Profile or there is no profile available on the substance, use the lowest
LC value which may be obtained from the site technical contact or from
published toxicology sources. The LCT_ is the lowest lethal concentration
liU
observed in tests on laboratory animals. If an LCTn is not available, use
the lowest LC,.- value divided by 10 for the chemical. The LCL0 is the
level for which 50 percent of the test animals died when exposed for a
specified time period. This value may also be obtained from the Profiles, the
site contact, or toxicological literature. The LC_0 value should be reduced
by a factor of 10 to better approximate the level for an IDLH.
If no LCT_ or LC,.-. data are available, use the lowest LDT_ oral and
then the lowest LD_n oral values reduced by a factor of 10. The LD values
represent the lethal dose via the oral route and will need to be converted to
inhalation doses as described below.
Once the level of concern (IDLH, LCTn, or LC,..) is known, it can be
used on the graph to determine quantity as long as it is converted or in the
form of g/m3. Inhalation toxicity levels may be given in units of parts per
million (ppm), milligrams per cubic meter (mg/m3), milligrams per liter
(mg/1), or grams per liter (g/1). The graph in Figure D-l uses the units of
g/m3, so any other units, such as ppm, must be converted to g/m3 before
using the graph. Levels given in parts per million can be converted to grams
per cubic meter (g/m3) as follows:
Level of Concern (in g/m3) = Toxicity Level (in ppm) x MW
1000 24.5
where MW is the substance molecular weight. For example, chlorine has a level
of concern (IDLH) of 25 ppm and a molecular weight of about 71. Thus the
level of concern in grains per cubic meter is:
Level of Concern (in g/m3) = 25 x 71 =0.07 g/m3
1000 24.5
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D-4
An inhalation toxicity level of concern given in milligrams per cubic meter
(mg/m3) can be converted to g/m3 as follows:
Level of Concern (in g/m3) = Toxicity Level (in mg/m3)
1000
An inhalation toxicity level of concern given in grams per liter (g/1) can be
converted to g/m3 as follows:
Level of Concern (in g/m3) = Toxicity Level (in g/1) x 1000
An inhalation toxicity level of concern given in milligrams per liter (mg/1)
can be converted to g/m3 as follows:
Level of Concern (in g/m3) = Toxicity Level (in mg/1)
D.3 USING THE GRAPH
Once the level of concern in grams per cubic meter and the distance in
feet are known, use the graph to determine the quantity. Using the left-hand
scale on the graph, mark the proper value for the level of concern for the
chemical you are considering. For example, chlorine should have a mark at
0.07. Next, move to the center scale and mark the distance from the source of
release to the site fence line or to a particular target of concern such as a
hospital or nursing home. Using a ruler or other straight-edge, draw a
straight line from the mark on the left scale through the mark on the center
scale to the scale on the right. Where the line hits the scale on the right
is the quantity of chemical that would result in the concentration on the left
scale at the distance on the center scale if it were all released. For
example, using chlorine, if a distance of 200 feet were used, the quantity
given on the right scale would be about 2.5 pounds. In other words, if 2.5
pounds of chlorine were released under poor meteorological and wind
conditions, potentially lethal levels of chlorine could be found at a distance
up to 200 feet away.
The procedures and example given above are appropriate for vapors released
from gases or volatile liquids. If the acutely toxic chemical substance being
evaluated is a dust or powder, the same graph procedure can be used assuming
that fine dusts or powders behave like vapors in air. The level of concern
may need adjustment, however. Solids are often tested for lethality on
laboratory animals by administering the substance orally. The results are
given as the lethal dose for 50 percent of the test animals or LD,-n in units
of milligrams per kilogram (mg/kg) of body weight. If the test results
already give an IDLH or include an LC value, use the procedures above. If
only an ID value is given for an oral test, then it must be converted to an
inhalation value for use on the quantity determination graph. The National
Research Council has developed a simple method for determining the inhalation
level associated with an LD oral dose.1 Convert the LD oral dose in
National Research Council, Criteria and Methods for Preparing
Emergency Exposure Guidance Level (EEGL) Documents. May 1985.
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D-5
milligrams per kilogram (mg/kg) to inhalation in grams per cubic meter
(g/ro3) as follows:
LD oral (in mg/kg) x 0.1 = Inhalation IDLH (in g/m3)
It must be emphasized that this conversion from oral to inhalation is
provided for assessment purposes only when inhalation toxicity values are
unavailable. It is not based on a validated technical procedure or any
Federal regulation in effect or contemplated and should not be used for any
other purpose.
D.4 NEXT STEPS
Once the quantity of concern has been determined from the graph, compare
it to the quantity stored in any one container or the quantity that could
possibly be released from a process on the site. If the quantity on the site
is much higher than the quantity determined from the graph, the work group
should continue gathering information for contingency planning for this
chemical and site. If the quantity on site is less than the quantity
determined from the graph, the work group may want to defer the chemical and
the site from the initial contingency planning effort. Depending on the kinds
of operations involving acutely toxic chemicals, the structure of the
surrounding population, terrain, and meteorology, as well as other factors,
the work group may choose to proceed with planning efforts for situations
which have not been prioritized by this methodology. The criteria for
selecting sites for contingency planning should not be based on this
methodology alone, but should include considerations of all the above
factors.
-------
Level of
Concern
(g/ m^)
100
50
20
10
5,0-
2.0'
1.0
0.5
0.2- '
0.1
0.05'
0.02-
0.01
0.005-
0.002'
0.001
Figure D-l
GRAPH FOR
QUANTITY DETERMINATION
Distance
(km) (ft)
.03
1.i330
.2 '660
0 5
0.7
1.0
5.0
10.0
100
1600
2300
3300
16.400
32.800
20.0 * 65.600
Quantity
(Ibs)
i.o
2.0 . >
5.0
10
20
50
100
200 ซ
500
1000
2000 ' >
5000 >
10.000
20.000 <
50.000 < i
100.000
-------
Level of
Concern
(g/m3)
100
20
10
5.0-
2.0
1.0
0.5'
0.2'
0.1
0.05
0.02
0.01
0.005'
0.002'
0.001
Figure D-2
GRAPH FOR
QUANTITY DETERMINATION
Quantity
(Ibs)
i o
2.0 . .
Distance
(km) (ft)
.03
ป (Chlorine example in i.o +3300
Section D.3)
5.0
10.0
.1 . 330
2 .660
0.5 .1600
0.7 , .2300
10
20 '
50 < .
16.400
32.800
20.0 65.600
100
200
500 ^
1000
2000 <
5000 .
10.000
20.000
50.000 >
100.000
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APPENDIX E
SELECTED BIBLIOGRAPHY
Chapter 1 referred to other documents that may prove helpful to anyone
undertaking to organize a community awareness and preparedness program
relating to acutely toxic chemical substances. Several pertinent documents
are listed here.
1. Planning Guide and Checklist for Hazardous Materials Contingency
Plans. Washington, D.C.: Federal Emergency Management Agency and U.S.
Environmental Protection Agency; Prepared by Rockwell International, 1981.
(This document is popularly referred to as FEMA-10.)
FEMA-10 is addressed to civic officials and is written in an informal
style. The emphasis is on the planning process, rather than on technical
details. There are four major sections: (a) awareness (which helps one
decide whether a plan is needed); (b) the planning process itself (which helps
identify who the planners should be and how the process should work); (c) plan
development and content (which identifies the types of plans as well as what
they may contain); and (d) plan appraisal and continued planning (which helps
evaluate a plan).
We encourage anyone using this guidance to consult FEMA-10 frequently.
Helpful references can be found interspersed throughout the text of FEMA-10.
Copies of FEMA-10 may be obtained by writing to:
Federal Emergency Management Agency
P.O. Box 8181
Washington, D.C. 20024
Note: FEMA-10 has been widely distributed; approximately 55,000 copies have
been provided to Federal, State, local and private hazardous materials
planners. Only limited copies of FEMA-10 remain available and re-printing is
not currently contemplated since the revised version is scheduled to be
available early in 1986. Due to the widespread distribution and the limited
copies remaining, please check local availability before requesting a copy.
If supplies are exhausted, your request will be added to the waiting list for
the revised guidance, which you will receive as soon as it is available.
2. Community Teamwork: Working Together to Promote Hazardous Materials
Transportation Safety. Washington, D.C.: U.S. Department of Transportation,
Research and Special Programs Administration; Prepared by Cambridge
Systematics, Inc. 1983.
This publication provides State and local (i.e., fire, police, emergency
service/civil defense, transportation, public safety, and environmental
protection) officials with guidance on the most efficient use of their
resources to develop effective hazardous materials programs. The bulk of the
guide describes how one can, with a limited budget: (1) perform a risk
analysis; (2) obtain and mobilize emergency response services; (3) perform
hazardous materials inspections; and (4) obtain hazardous materials training.
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E-2
This guidance document will augment DOT's Community Teamwork by giving
major attention to fixed facilities that might be the source of acutely
hazardous chemical releases. However, this document does not develop
transportation issues in detail; communities can consult Community Teamwork
for such considerations.
It is worthy of note that deliberate and detailed attention to minimizing
costs is a consistent aspect of DOT's Community Teamwork. Because most
communities must plan against the background of strict budget limitations,
Community Teamwork should be of interest for this reason alone. Community
Teamwork will also prove helpful to those planning to provide personnel
safety equipment and clothing. Copies of Community Teamwork can be obtained
by calling (202) 426-2301 or writing to:
Office of Hazardous Materials Transportation,
Attn.: DHM-50
Research and Special Programs Administration
Department of Transportation
400 7th Street, S.W.
Washington, D.C. 20590
3. Hazardous Materials Management System; A Guide for Local Emergency
Managers. Portland: Multnomah County Office of Emergency Management, 1983.
This handbook is a detailed guidance document prepared at the local level
and published by the Multnomah County Office of Emergency Management in
Portland, Oregon. This handbook guides the local emergency manager in the
development and implementation of a comprehensive system approach for dealing
with hazardous materials incidents within a specific geographic area. It is
written from the perspective that such a system is muIti-disciplinary and
requires a team effort under the leadership of a local "emergency manager."
Information on availability of the Multnomah County guide can be obtained
by calling (503) 255-3600 or writing to:
Multnomah County Emergency Management
12240 N.E. Glizan
Portland, Oregon 97230
4. Community Awareness and Emergency Response Program Handbook.
Washington, D.C.: Chemical Manufacturers Association, 1985.
This recent private sector planning document is similar to those prepared
by government agencies. However, the CMA document addresses chemical plant
managers in two areas:
Community awareness: developing a community outreach
program and providing the public with information on
chemicals manufactured or used at local chemical plants;
and
Emergency response planning: combining chemical
plant emergency plans with other local planning.
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E-3
Like FEMA-10, this CMA document presumes that the key organizing person
might have no experience in contingency planning; hence, there is a quantity
of elementary detail to help such an organizer. Pages 16-40 will prove
helpful to any community preparing to develop a contingency plan to respond to
acutely toxic chemical incidents. Appendix 1 lists typical components of a
chemical plant emergency response plan; Appendix 2 provides highlights of
interrelated plant, community, and State plans.
Copies of the CMA guide are available for a charge of $10.00 and can be
obtained by calling (202) 887-1100 or writing to:
Chemical Manufacturers Association
2501 M Street, N.W.
Washington, B.C. 20037
5. An Unconstrained Overview of the Critical Elements in a Model State
System for Emergency Responses to Radiological Transportation Incidents.
Washington, D.C.: U.S. Nuclear Regulatory Commission and U.S. Environmental
Protection Agency; Prepared by Rockwell International, 1981.
6. Atmospheric Emergencies: Existing Capabilities and Future Needs.
Washington, D.C.: Transportation Research Board, 1983.
7. Chemical Hazards Response Information System (CHRIS), Manual II:
Hazardous Chemical Data. Washington, D.C.: United States Coast Guard,
Department of Transportation, 1984.
8. Criteria and Methods for Preparing Emergency Exposure Guidance Level
(EEGL) Documents. Washington, D.C.: National Research Council, May 1985.
9. Criteria for Preparation and Evaluation of Radiological Emergency
Response Plans and Preparedness in Support of Nuclear Power Plants.
Washington, D.C.: U.S. Nuclear Regulatory Commission and Federal Emergency
Management Agency, 1980.
10. Emergency Planning, Student Manual. Washington, D.C.; Federal
Emergency Management Agency, August 1983.
11. Disaster Operations: A Handbook for Local Governments, Washington,
D.C.: Federal Emergency Management Agency, 1981.
12. 1984 Emergency Response Guidebook. Washington, D.C.: U.S.
Department of Transportation, 1984. This is available at:
Office of Hazardous Materials Transportation,
Attn.: DHM-50
Research and Special Programs Administration
Department of Transportation
400 7th Street, S.W.
Washington, D.C. 20590
13. Guidance for Developing State and Local Radiological Emergency
Response Plans and Preparedness for Transportation Accidents. Washington,
D.C.: Federal Emergency Management Agency, 1983.
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E-4
14. Guide and Checklist for the Development and Evaluation of State and
Local Government Radiological Emergency Response Plans in Support of Fixed
Nuclear Facilities. Washington, B.C.: U.S. Nuclear Regulatory Commission,
Office of International and State Programs, 1974.
15. Local Government Emergency Planning, CPG 1-8. Washington, B.C.;
Federal Emergency Management Agency, April 1982.
16. Multi-Media Compliance Inspection: Union Carbide Corporation,
Institute, WV. Philadelphia: Environmental Protection Agency, Region III,
1985.
17. The National Oil and Hazardous Substances Pollution Contingency
Plan. Washington, B.C.: U.S. Environmental Protection Agency, 40 CFR Part
300. (Usually referred to as the National Contingency Plan.)
18. Objectives for Local Emergency Management. Washington, B.C.:
Federal Emergency Management Agency, 1984.
19. Risk Assessment/Vulnerability Users Manual for Small Communities and
Rural Areas. Washington, B.C.: U.S. Bepartment of Transportation, Research
and Special Programs Administration; Prepared by Bepartment of Civil
Engineซring, Kansas State University, 1981.
20. Student, Patrick J. (ed). Emergency Handling of Hazardous Materials
in Surface Transportation. Washington, B.C.: Association of American
Railroads, Bureau of Explosives, 1981.
21. Vincent, James R. Overview of Environmental Pollution in the
Kanawha Valley. Benver: EPA Office of Enforcement and Compliance
Monitoring, 1984.
22. Zajic, J.E., and Himmelman, N.A. Highly Hazardous Materials Spills
and Emergency Planning. New York: Marcel Bekker, Inc., 1978.
23. Hazardous Materials Transportation: A Synthesis of Lessons Learned
from the BOT Bemonstration Projects, Washington, B.C.: ICF Incorporated.
This forthcoming report summarizes seven BOT sponsored demonstration projects
on prevention and preparedness planning. The synthesis contains a discussion
of the lesions learned so that other communities can benefit from the
experience (see Appendix F).
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APPENDIX F
SUMMARY OF U.S. DEPARTMENT OF TRANSPORTATION
CONTINGENCY PLANNING DEMONSTRATIONS
This appendix summarizes the experiences and lessons learned by local,
regional, and State governments that participated in hazardous materials
transportation safety contingency planning demonstration projects sponsored by
the U.S. Department of Transportation (DOT). Detailed information on these
projects can be found in the reports prepared by the projects for DOT, which
are noted in this guide's bibliography, and the forthcoming summary prepared
for DOT, "Accident Prevention and Response Planning for Hazardous Materials
Transportation: Lessons Learned from State and Local Experiences" (working
title).
The DOT demonstration projects are oriented toward slightly different
safety issues than this volume, but communities developing contingency plans
for responding to incidents involving the release of acutely toxic chemicals
can benefit from the experiences of these related projects. Differences in
emphasis between the DOT projects and this volume include the following:
The DOT projects were primarily concerned with
accidents involving transportation rather than sites or
facilities;
The DOT projects gave more emphasis to prevention
activities than the current volume; and
The DOT projects addressed all hazardous materials
rather than focusing on acutely toxic chemicals.
Communities engaged in contingency planning for acutely toxic chemicals
incidents can benefit in two ways by learning about the experiences of the DOT
projects: many of the same activities must be undertaken for both types of
contingency planning, and communities may wish to integrate their planning for
responding to acutely toxic chemicals incidents with a broader planning effort
covering prevention, transportation, and other hazardous materials. After
providing some background information on the projects, this appendix briefly
summarizes the experiences and lessons of the DOT projects in performing the
tasks of contingency planning:
Getting started;
Surveying hazardous materials transportation and
conducting risk analysis;
Assessing incident prevention and response
capabilities;
Developing hazardous materials contingency plans; and
Implementing and updating hazardous materials
contingency plans.
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F-2
Background of the Projects
In 1980, DOT supported a pilot project in the Puget Sound region in the
State of Washington to assist the region in developing a contingency plan for
improving hazardous materials transportation safety. Following the success of
the pilot project, six demonstration projects were supported between 1981 and
1983. The six demonstration projects were in Memphis, Tennessee; New Orleans,
Louisiana; Indianapolis, Indiana; Niagara County, New York; Massachusetts; and
ABAG (the Association of Bay Area Governments in the San Francisco Bay area of
California). Demonstration projects were selected by DOT to represent a
variety of geographical settings, transportation hazards, and size and type of
area covered by the study. While all the projects addressed the same broad
class of hazardous materials transportation problems and carried out the same
broad categories of activities, differences in local circumstances led to
significant variations in how the planning was undertaken.
Getting Started
To get started in hazardous materials safety planning, it was necessary
for each of the demonstration projects to determine the area covered by the
planning effort, who should be involved in the effort and in what capacity,
how the effort would be organized, and the level and sources of funding. The
DOT projects included city, county, regional, and State level efforts. While
all levels of projects were able to improve awareness and stimulate safety
efforts, the regional and State projects could not implement specific accident
prevention and response plans because primary responsibility for these
activities is vested in local and county government. Regional and State
projects did prove valuable in improving awareness of the hazardous materials
problems, fostering enhanced communications and cooperation among local and
county governments, and helping local and county governments understand the
resources and hazards of their neighbors.
Leadership was vested in a number of different agencies in the projects.
For example, the New Orleans project was led by the Environmental Affairs Unit
of the Office of Analysis and Planning in the Mayor's office, and othes
projects were led by the local fire department or emergency management agency;
the two regional projects were led by councils of governments. Strong
political support proved helpful in some projects, but a change in
administration caused delays in implementing plans in one project.
All the projects formed advisory bodies with representatives from affected
constituencies: city, county, State, and Federal agencies; city and State
legislatures; private industry; and citizens' groups. Regular meetings of the
advisory bodies were held, and these meetings were judged by participants to
be extremely helpful in improving cooperation and communications among
agencies and organizations with sometimes competing interests and views. The
advisory bodies operated on a consensus basis and, although the process of
achieving consensus required a great deal of time, all projects found the
process to be a valuable part of the planning effort. Most of the advisory
bodies established committees to deal with specific tasks, and the committees
sometimes included additional members with knowledge and interest on the
committee's subject area.
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The demonstration projects used three approaches for obtaining staff to
perform the work:
Using local agency staff;
Using local agency staff to manage the project, but
relying on contractors or consultants to perform
specific portions of the work; and
Having contractors or consultants perform most of the
work.
The staff of the projects that performed most of the work in-house felt their
organizations gained institutional knowledge that helped them continue their
involvement after the end of the projects; the staff of projects using
contractors noted that they lacked in-house expertise in some areas and that
it was impractical to hire new staff to perform these duties. Because
planning for incidents involving acutely toxic chemicals may require more
technical expertise than general hazardous materials contingency planning,
there may be more need to obtain outside assistance in developing a
specialized contingency plan for such substances.
Costs were kept down in the demonstration projects in a variety of ways,
for instance, by utilizing:
Voluntary assistance;
Existing surveys and analyses;
Student interns;
Industry response resources; and
Coordinated purchases with nearby communities.
Surveying Hazardous Materials Transportation and Performing
Hazards Analysis
The first substantive step in improving hazardous materials safety
management for each of the demonstration projects was to get some feel for the
hazardous materials problem in the area. The DOT projects found that
excellent data were available for all modes of transport (rail, air, water,
and pipeline) except for highways. Because most of the projects found that
highways pose the greatest hazardous materials transportation risks, some
original research on highway hazards was conducted. Methods used ranged from
simple counts of placarded trucks to comprehensive surveys of drivers and
trucking company officials. Simple counts cannot be used to identify carriers
of acutely toxic chemicals, however, because the placarding system does not
easily distinguish such chemicals from other hazardous materials. All of the
projects found that petrochemicals represent the most common class of
hazardous material transported.
After surveying the hazardous materials transportation in their area, the
demonstration projects performed a hazards analysis to determine the threats
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F-4
to life, property, and the environment likely to result from the presence of
hazardous materials in the area. The risk analyses performed by the DOT
projects varied significantly in their sophistication, ranging from
qualitative studies that identified the areas most vulnerable to serious
incidents to complex computer models that assigned numerical risk ratings to
every area in the jurisdiction. Some of the jurisdictions using complex
models found them to be costly and difficult to perform. Projects using
simpler models were generally satisfied that their simple, less expensive
techniques enabled them to identify their most vulnerable areas and improve
their response capabilities.
It is important to note that some of the simpler forms of hazards analysis
may lead to overlooking the threats posed by acutely toxic chemicals if they
concentrate on the most prevalent hazardous materials. The risk posed by an
acutely toxic chemicals is caused less by the frequency of incidents than by
the potentially large loss of life that can result from a single catastrophic
incident.
Assessing Prevention and Response Capabilities
The next step in the planning process performed by the DOT projects was to
determine what prevention and response capabilities were available. Each
project performed research on laws pertaining to hazardous materials safety at
the Federal, State, and local levels. In the transportation area, States paid
special attention to the presence or need for a law similar to the
Federal-level 49 CFR, which sets requirements, such as placarding requirements
and shipping container specifications, for hazardous materials shippers and
carriers.
In the area of response capabilities, several of the demonstration
projects had findings that could help guide other projects:
Formal written mutual aid agreements can be useful,
but they often lacked detail;
Communications links generally needed to be improved;
First responders frequently lacked the specialized
training needed for hazardous materials incidents;
The fire department virtually always had the lead role
in response;
Private industry can play a major role in responding
to incidents; and
Simulations can be useful in identifying weaknesses in
response capabilities.
Some of these findings are likely to be highly relevant for developing
response plans for incidents involving acutely toxic chemicals. For example,
because these chemicals are not as common as other hazardous materials,
facilities with such chemicals on-site are likely to have the best equipment
and information needed for response. In addition, because major releases of
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F-5
such chemicals occur rarely, simulations may provide the best opportunities
for checking response plan adequacy.
Developing Hazardous Materials Contingency Plans
The next step in the planning process for the DOT projects was the
development of a contingency plan. As noted above, the plan was adopted on a
consensus basis by the advisory body after lengthy discussion by all affected
parties.
Although there are many other elements that a plan can contain, the
operational contingency plans developed by the DOT projects included:
A response checklist and communications roster;
Designation of agency roles and responsibilities; and
Emergency operating procedures.
In addition to formal approval by the advisory board, many of the projects
sought adoption by the jurisdiction's law-making body to give it official
status. Additional legislative action was sometimes necessary, for example,
where the plan called for specific new laws, such as a "Good Samaritan" law,
or where expenditures for training or equipment are required.
Implementing and Updating Hazardous Materials Safety Programs
The DOT projects all recognized that developing a contingency plan is not
the end of the process. Several of the jurisdictions have updated their plans
as a result of tabletop or field simulations or after incidents indicated
shortcomings in the plans. Several of the projects continued their advisory
bodies after the formal demonstration projects ended; these jurisdictions
noted that even the best of plans can become obsolete over time as hazards
change and equipment becomes obsolete. Continued momentum for improving
contingency plans occurred most often in projects where the advisory body
continued to meet regularly.
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APPENDIX G
EPA REGIONAL CONTACTS FOR THE CHEMICAL
EMERGENCY PREPAREDNESS PROGRAM
EPA Regional Contacts:
1. John F. Kennedy Federal Building
Room 2203
Boston, MA 02203
(Maine, Vermont, New Hampshire,
Massachusetts, Rhode Island,
Connecticut)
2. 26 Federal Plaza
Room 900
New York, NY 10278
(New York, New Jersey, Puerto Rico,
Virgin Islands)
3. 841 Chestnut Street
Philadelphia, PA 19107
(Pennsylvania, Maryland, D.C.,
Delaware, Virginia, West Virginia)
4. 345 Court land Street, N.E.
Atlanta, GA 30365
(North Carolina, South Carolina,
Georgia, Florida, Mississippi,
Alabama, Tennessee, Kentucky)
5. 230 South Dearborn Street
Chicago, IL 60604
(Wisconsin, Illinois, Indiana,
Michigan, Ohio, Minnesota)
6. 1201 Elm Street
Dallas, TX 75270
(New Mexico, Texas, Oklahoma,
Louisiana, Arkansas)
7. 726 Minnesota Avenue
Kansas City, KS 66101
(Nebraska, Kansas, Iowa, Missouri) ,
8. One Denver Place
999 18th Street
Suite 1300
Denver, CO 80202
(Montana, Wyoming, Utah, Colorado,
North Dakota, South Dakota)
Environmental Services Division
(617) 861-6700, ext. 221
Superfund Technical Information
Services
New Jersey: 1-800-346-5009
New York : 1-800-732-1223
Office of Public Affairs
1-800-438-2474
Emergency Response and Control
Section
(404) 881-3931
Jack Barnette
Emergency Response Section
(312) 886-1964
Regional Information Center
(214) 767-7341
Emergency Planning and Response
Branch
(913) 236-3888
Dewitt Baulch
Air Toxic Division, Air Programs
Branch
(303) 298-1761
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9. 215 Fremont Street Chemical Emergency Preparedness
San Francisco, CA 94105 Program
(California, Nevada, Arizona, 1-800-231-3075
Hawaii, American Samoa, Guam)
10. 1200 Sixth Avenue Hazardous Waste Division
Seattle, WA 98101 Emergency Response Team
(Washington, Oregon, Idaho, (206) 442-1263
Alaska)
Chemical Emergency Preparedness Program HOTLINE NUMBER
1-800-535-0202 (in Washington, D.C.: (202) 479-2449)
(Available for one year, Monday-Friday, 8:30 a.m.-4:30 p.m.)
U.S. Environmental Protection A
Region 5, Library (5PL-16)
230 S. D~u oo - St. set. Room
ปU.S. GOVERNMENT PRINTING OFFICE: 1986-619-19^:^0439
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