Planning Guidance for Protection and Recovery Following Radiological Dispersal Device (RDD) and Improvised Nuclear Device (IND) Incidents, 45029-45048 [E8-17645]

Agencies

• Federal Emergency Management Agency
• DEPARTMENT OF HOMELAND SECURITY

[Federal Register Volume 73, Number 149 (Friday, August 1, 2008)]
[Notices]
[Pages 45029-45048]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E8-17645]


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DEPARTMENT OF HOMELAND SECURITY

Federal Emergency Management Agency

[Docket ID FEMA-2004-0004]
[Z-RIN 1660-ZA02]


Planning Guidance for Protection and Recovery Following 
Radiological Dispersal Device (RDD) and Improvised Nuclear Device (IND) 
Incidents

AGENCY: Federal Emergency Management Agency, DHS.

ACTION: Notice of final guidance.

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SUMMARY: The Department of Homeland Security (DHS) is issuing final 
guidance entitled, ``Planning Guidance for Protection and Recovery 
Following Radiological Dispersal Device (RDD) and Improvised Nuclear 
Device (IND) Incidents'' (the Guidance). This Guidance is intended for 
Federal agencies, State and local governments, emergency management 
officials, and the general public who should find it useful in 
developing plans for responding to an RDD or IND incident. The Guidance 
recommends ``protective action guides'' (PAGs) to support decisions 
about actions that should be taken to protect the public and emergency 
workers when responding to or recovering from an RDD or IND incident. 
The Guidance outlines a process to implement the recommendations, 
discusses existing operational guidelines that should be useful in the 
implementation of the PAGs and other response actions, and encourages 
federal, state and local emergency response officials to use these 
guidelines to develop specific operational plans and response protocols 
for protection of emergency workers responding to catastrophic 
incidents involving high levels of radiation and/or radioactive 
contamination.

DATES: This notice is effective August 1, 2008.

FOR FURTHER INFORMATION CONTACT: Craig Conklin, Director Sector 
Specific Agency Executive Management Office, Office of Infrastructure 
Protection,

[[Page 45030]]

Department of Homeland Security at 703-235-2850 (phone), or 
craig.conklin@dhs.gov (e-mail), or, John MacKinney, Deputy Director, 
Nuclear/Radiological/Chemical Threats and Science and Technology 
Policy, Office of Policy, Department of Homeland Security, at (202) 
447-3885 (phone), or john.mackinney@dhs.gov (e-mail).

SUPPLEMENTARY INFORMATION: 

Table of Contents

Preface
    (a) Introduction
    (b) Characteristics of RDD and IND Incidents
    (1) Radiological Dispersal Device (RDD)
    (2) Improvised Nuclear Device (IND)
    (3) Differences Between Acts of Terror and Accidents
    (c) Phases of Response
    (1) Early Phase
    (2) Intermediate Phase
    (3) Late Phase
    (d) Guidance for RDD and IND Incidents
    (1) Protective Actions
    (2) Protective Action Guides (PAGs)
    (3) Early and Intermediate Phase Protective Action Guides for 
RDD and IND Incidents
    (A) Early Phase PAGs
    (B) Intermediate Phase PAGs
    (4) Late Phase Guidance
    (5) Emergency Worker Guidance
    (e) Operational Guidelines for Early and Intermediate PAGs
    (1) Derived Response Levels (DRLs)
    (2) Derived Intervention Levels (DILs) for Food
    (3) Radiation Levels for Control of Access to Radiation Areas
Appendix 1. Planning for Protection of Emergency Workers Responding 
to RDD and IND Incidents
    (a) Guidelines for Emergency Workers in Responding to RDD and 
IND Incidents
    (b) Controlling Occupational Exposures and Doses to Emergency 
Workers
    (c) Understanding Radiation Risks
    (d) Preparedness
Appendix 2. Risk Management Framework for RDD and IND Incident 
Planning
    (a) The Stages of the Risk Management Framework for Responding 
to RDD and IND Incidents
    (1) Define the Problems and Put Them in Context
    (2) Analyze the Risks
    (3) Examine the Options
    (4) Make a Decision
    (5) Take Action To Implement Decision
    (6) Evaluate the Results
    (b) Technical Advisory Committee
Appendix 3. Federal Cleanup Implementation Cleanup Activities 
Overview
    (a) General Management Structure
    (1) Technical Working Group
    (2) Stakeholder Working Group
    (b) Activities
    (1) Optimization and Recommendation
    (2) Public Review of Decision
    (3) Execute Cleanup
Appendix 4. Operational Guidelines for Implementation of Protective 
Action Guides and Other Activities in RDD or IND Incidents
    (a) Group A: Access Control During Emergency Response Operations
    (b) Group B: Early Phase Protective Action (Evacuation or 
Sheltering)
    (c) Group C: Relocation and Critical Infrastructure Utilization 
in Affected Areas
    (d) Group D: Temporary Access to Relocation Areas for Essential 
Activities
    (e) Group E: Transportation and Access Routes
    (f) Group F: Release of Property From Radiologically Controlled 
Areas
    (g) Group G: Food Consumption
    (h) Derivation of Operational Guidelines
Appendix 5. References
Appendix 6. Acronyms/Glossary

Background

    This Guidance was developed to address the critical issues of 
protective actions and protective action guides (PAGs) to protect human 
health and to mitigate the effects caused by terrorists' use of a 
Radiological Dispersal Device (RDD) or Improvised Nuclear Device (IND). 
This document provides guidance for site cleanup and recovery following 
an RDD or IND incident, and affirms the applicability of existing 1992 
EPA PAGs for radiological emergencies.
    The development of this Guidance was directed by the White House, 
Office of Science and Technology Policy, through the National Science 
and Technology Council, Committee on Homeland and National Security, 
Subcommittee on Standards (SoS). In 2003, the SoS convened a senior 
level Federal working group, chaired by DHS, to develop guidance for 
response and recovery following a radiological dispersal device (RDD) 
or improvised nuclear device (IND) incident. The working group 
consisted of senior subject matter experts in radiological/nuclear 
emergency preparedness, response, recovery, and incident management. 
The following Federal departments and agencies were represented on the 
working group: DHS, EPA, Department of Commerce (DOC), Department of 
Energy (DOE), Department of Defense (DOD), Department of Labor (DOL), 
Department of Health and Human Services (HHS), and Nuclear Regulatory 
Commission (NRC).
    On January 3, 2006, DHS issued the ``Preparedness Directorate; 
Protective Action Guides for Radiological Dispersal Device (RDD) and 
Improvised Nuclear Device (IND) Incidents; Notice'' (71 FR 174, Jan. 3, 
2006), and requested public comments on this interim Guidance. Some 
changes to the Guidance were made as a result of these comments. A 
summary of the comments on the interim Guidance document and responses 
are available at Docket ID No. FEMA-2004-0004 at https://
www.regulations.gov.
    In addition to the issuance of this Guidance, in response to 
interagency working group discussions and public comments, further 
guidance will be provided for the consequences that would be unique to 
an IND attack. This Guidance was not written to provide specific 
recommendations for a nuclear detonation (IND), but to consider the 
applicability of existing PAGs to RDDs and INDs. In particular, it does 
not consider very high doses or dose rate zones expected following a 
nuclear weapon detonation and other complicating impacts that can 
significantly affect life-saving outcomes, such as severely damaged 
infrastructure, loss of communications, water pressure, and 
electricity, and the prevalence of secondary hazards. Scientifically 
sound recommendations for responders are a critical component of post-
incident life-saving activities, including implementing protective 
orders, evacuation implementation, safe responder entry and operations, 
and urban search and rescue and victim extraction. In the interim, this 
Guidance should be used until the IND guidance is developed.
    The intended audience of this document are Federal, State, and 
local radiological emergency response and incident management 
officials. This Guidance is not intended to impact site cleanups 
occurring under other statutory authorities such as the Environmental 
Protection Agency's (EPA) Superfund program, the Nuclear Regulatory 
Commission's (NRC) decommissioning program, or other Federal and State 
cleanup programs. In addition, the scope of this Guidance does not 
include situations involving U.S. nuclear weapons accidents.
    In addition to the issuance of this Guidance, further guidance is 
being planned for the devastating consequences that would be unique to 
INDs. In the interim, the present document will provide general RDD and 
IND guidance.
    By agreement with the Environmental Protection Agency (EPA), the 
Guidance being published today is final and its substance will be 
incorporated without change into the revision of the 1992 EPA Manual of 
Protective Actions Guides and Protective Actions for Nuclear Incidents 
(the PAG Manual). This notice of final guidance will therefore sunset 
upon publication of the new EPA PAG Manual (see, https://www.epa.gov/
radiation/rert/pags.html). The reader will then be directed to the

[[Page 45031]]

new EPA PAG Manual, where these provisions may be found.

(a) Introduction

    For the early and intermediate phases of response, this document 
presents levels of projected radiation dose at which the Federal 
Government recommends that actions be considered to avoid or reduce 
adverse public health consequences from an RDD or IND incident. This 
document incorporates guidance and regulations published by the EPA, 
Food and Drug Administration (FDA), and the Occupational Safety and 
Health Administration (OSHA). For the late phase of the response, this 
Guidance presents a process for establishing appropriate exposure 
levels based on site-specific circumstances. This Guidance addresses 
key radiological protection questions at each stage of an RDD or IND 
incident (early, intermediate, and late) and constitutes advice by the 
Federal government to Federal, State, and local decision makers.
    The objective of the Guidance is to aid decision makers in 
protecting the public, first responders, and other emergency workers 
from the effects of radiation, and cleaning up the affected area, while 
balancing the adverse social and economic impacts following an RDD or 
IND incident. Restoring the normal operation of critical 
infrastructure, services, industries, business, and public activities 
as soon as possible can minimize adverse social and economic impacts.
    This Guidance for RDD and IND incidents is not a set of absolute 
standards. The guides are not intended to define ``safe'' or ``unsafe'' 
levels of exposure or contamination; rather they represent the 
approximate levels at which the associated protective actions are 
justified. The Guidance provides Federal, State and local decision 
makers the flexibility to be more or less restrictive, as deemed 
appropriate based on the unique characteristics of the incident and 
local considerations.
    This RDD/IND Guidance can be used to select actions to prepare for, 
respond to, and recover from the adverse effects that may exist during 
any phase of a terrorist incident--the early (emergency) phase, the 
intermediate phase, or the late phase. There may be an urgent need to 
evacuate people; there may also be an urgent need to restore the 
services of critical infrastructure (e.g., roads, rail lines, airports, 
electric power, water, sewage, medical facilities, and businesses) in 
the hours and days following the incident--thus, some response 
decisions must be made quickly. If the decisions affecting the recovery 
of critical infrastructure are not made quickly, the disruption and 
harm caused by the incident could be inadvertently and unnecessarily 
increased. Failure to restore important services rapidly could result 
in additional adverse public health and welfare impacts that could be 
more significant than the direct radiological impacts.

(b) Characteristics of RDD and IND Incidents

    A radiological incident is defined as an event or series of events, 
deliberate or accidental, leading to the release, or potential release, 
into the environment of radioactive material in sufficient quantity to 
warrant consideration of protective actions. Use of an RDD or IND is an 
act of terror that results in a radiological incident.
(1) Radiological Dispersal Device (RDD)
    An RDD poses a threat to public health and safety through the 
malicious spread of radioactive material by some means of dispersion. 
The mode of dispersal typically conceived as an RDD is an explosive 
device coupled with radioactive material. The explosion adds an 
immediate threat to human life and property. Other means of dispersal, 
both passive and active, may be employed.
    There is a wide range of possible consequences that may result from 
an RDD, depending on the type and size of the device and how dispersal 
is achieved. The consequences of an RDD may range from a small, 
localized area, such as a single building or city block, to large 
areas, conceivably several square miles. However, most experts agree 
that the likelihood of impacting a very large area is low. In most 
plausible scenarios, the radioactive material would not result in 
acutely harmful radiation doses, and the primary public health concern 
from those materials would be increased risk of cancer to exposed 
individuals. Hazards from fire, smoke, shock (physical, electrical, or 
thermal), shrapnel (from an explosion), hazardous materials, and other 
chemical or biological agents may also be present.
(2) Improvised Nuclear Device (IND)
    An IND is an illicit nuclear weapon bought, stolen, or otherwise 
originating from a nuclear State, or a weapon fabricated by a terrorist 
group from illegally obtained fissile nuclear weapons material that 
produces a nuclear explosion. The nuclear yield achieved by an IND 
produces extreme heat, powerful shockwaves, and prompt radiation that 
would be acutely lethal for a significant distance. It also produces 
radioactive fallout, which may spread and deposit over very large 
areas. If a nuclear yield is not achieved, the result would likely 
resemble an RDD in which fissile weapons material was utilized.
(3) Differences Between Acts of Terror and Accidents
    Most radiological emergency planning has been conducted to respond 
to potential nuclear power plant accidents. RDD and IND incidents 
differ from a nuclear power plant accident in several ways, and 
response planning should take these differences into account. First, 
the severity of an IND incident would be dramatically greater than any 
nuclear power plant accident. An IND would have grave consequences for 
the human population and create a large radius of severe damage from 
blast and fires, which could not occur in a nuclear power plant 
accident.
    Second, the radiological release from an RDD or IND may start 
without any advance warning and would likely have a relatively short 
duration. In a major nuclear power plant accident, there is likely to 
be several hours or days of warning before the release starts, and the 
release is likely to be drawn out over many hours. This difference 
means that most early phase, and some intermediate phase, protective 
action decisions, which may be made in a timely fashion during power 
plant incidents, must be made much more quickly (and with less 
information) in an RDD or IND incident if they are to be effective.
    Third, an RDD or IND incident is more likely to occur in a major 
city center with a large population. Because of the rural setting in 
which many nuclear facilities are located, the lower number and density 
of people affected by a nuclear plant incident would be less, making 
evacuations much more manageable, and the amount of critical 
infrastructure impacted is also likely to be smaller.
    Fourth, large nuclear facilities have detailed emergency plans 
developed over years that are periodically exercised including 
specified protective actions, evacuation routes, and methods to quickly 
alert the public of the actions to take. This would not be the case for 
an RDD or IND incident. This level of radiological emergency planning 
typically does not exist in most cities and towns without nearby 
nuclear facilities.
    Fifth, the radioactive material releases from a nuclear power plant 
incident would be well known in advance based on reactor operational 
characteristics

[[Page 45032]]

whereas releases associated with an RDD or IND would not.
    Sixth, in an act of terrorism, the incident scene becomes a crime 
scene. As such, the crime scene must be preserved for forensic 
investigation. This may impact emergency responders during the early 
and intermediate phases of response. It should be noted that other 
personnel responding to the incident (i.e., law enforcement, security 
personnel) will be involved in addition to emergency responders.

(c) Phases of Response

    Typically, the response to an RDD or IND incident can be divided 
into three time phases--the early phase, the intermediate phase, and 
the late phase--that are generally accepted as being common to all 
radiological incidents. The phases represent time periods in which 
response officials would be making public health protection decisions. 
Although these phases cannot be represented by precise time periods, 
and may overlap, they provide a useful framework for the considerations 
involved in emergency response planning.
(1) Early Phase
    The early phase (or emergency phase) is the period at the beginning 
of the incident when immediate decisions for effective protective 
actions are required, and when actual field measurement data generally 
are not available. Exposure to the radioactive plume, short-term 
exposure to deposited radioactive materials, and inhalation of 
radioactive material are generally taken into account when considering 
protective actions for the early phase. The response during the early 
phase includes initial emergency response actions to protect public 
health and welfare in the short term, considering a time period for 
protective actions of hours to a few days. Priority should be given to 
lifesaving and first-aid actions. In general, early phase protective 
actions should be taken very quickly, and the protective action 
decisions can be modified later as more information becomes available. 
If an explosive RDD is deployed without warning, however, there may be 
no time to take protective actions to significantly reduce plume 
exposure. Also, in the event of a covert dispersal, discovery or 
detection may not occur for days or weeks, allowing contamination to be 
dispersed broadly by foot, vehicular traffic, wind, rain, or other 
forces.
    If an IND explodes, there may only be time to make early phase 
protective action recommendations (e.g., evacuation, or shelter-in-
place) many miles from the explosion to protect areas against exposure 
to fallout. Areas close to the explosion will be devastated, and 
communications and access will be extremely limited. Assistance will 
likely not be forthcoming or even possible for some hours. Self-guided 
protective actions are likely to be the best recourse for most 
survivors (e.g., evacuation perpendicular to the plume movement if it 
can be achieved quickly, or sheltering in a basement or large building 
for a day or more after the incident \1\). Due to the lack of 
communication and access, outside guidance and assistance to these 
areas can be expected to be delayed. Therefore, response planning and 
public outreach programs are critical measures to meet IND preparedness 
objectives.
---------------------------------------------------------------------------

    \1\ Additional protective action guides and recommendations are 
needed for the close-in zones after an IND. A follow-on Federal 
effort is underway to address this critical need.
---------------------------------------------------------------------------

(2) Intermediate Phase
    The intermediate phase of the response may follow the early phase 
response within as little as a few hours. The intermediate phase of the 
response is usually assumed to begin after the incident source and 
releases have been brought under control and protective action 
decisions can be made based on measurements of exposure and radioactive 
materials that have been deposited as a result of the incident. 
Activities in this phase typically overlap with early and late phase 
activities, and may continue for weeks to many months, until protective 
actions can be terminated.
    During the intermediate phase, decisions must be made on the 
initial actions needed to recover from the incident, reopen critical 
infrastructure, and return to a state of relatively normal activity. In 
general, intermediate phase decisions should consider late phase 
response objectives. However, some intermediate phase decisions will 
need to be made quickly (i.e., within hours) and should not be delayed 
by discussions on what the more desirable permanent decisions will be. 
Local officials must weigh public health and welfare concerns, 
potential economic effects, and many other factors when making 
decisions. For example, it can be expected that hospitals and their 
access roads will need to remain open or be reopened quickly. These 
interim decisions can often be made with the acknowledgement that 
further work may be needed as time progresses.
(3) Late Phase
    The late phase is the period when recovery and cleanup actions 
designed to reduce radiation levels in the environment to acceptable 
levels are commenced. This phase ends when all the remediation actions 
have been completed. With additional time and increased understanding 
of the situation, there will be opportunities to involve key 
stakeholders in providing sound, cost-effective cleanup recommendations 
that are protective of human health and the environment. Generally, 
early (or emergency) phase decisions will be made directly by elected 
public officials, or their designees, with limited stakeholder 
involvement due to the need to act within a short timeframe. Long-term 
decisions should be made with stakeholder involvement, and can also 
include incident-specific technical working groups to provide expert 
advice to decision makers on alternatives, costs, and impacts. The 
relationship between typical protective actions and the phases of the 
incident response are outlined in Figure 1. There is overlap between 
the phases; this framework should be used to inform planning and 
decision-making.
BILLING CODE 9110-21-I

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[GRAPHIC] [TIFF OMITTED] TN01AU08.003

BILLING CODE 9110-21-C

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(d) Guidance for RDD and IND Incidents

    This section defines protective actions and protective action 
guides, and provides guidance for their implementation in RDD and IND 
incidents. In addition, this section provides guidance for protection 
of emergency workers, and a strategy for devising cleanup plans, 
criteria, and options.
(1) Protective Actions
    Protective actions are activities that should be conducted in 
response to an RDD or IND incident in order to reduce or eliminate 
exposure of the public to radiation or other hazards. These actions are 
generic and are applicable to RDDs and INDs. The principal protective 
action decisions for consideration in the early and intermediate phases 
of an emergency are whether to shelter-in-place, evacuate, or relocate 
affected or potentially affected populations. Secondary actions include 
administration of medical countermeasures, decontamination (including 
decontamination of persons evacuated from the affected area), use of 
access restrictions, and use of restrictions on food and water. In some 
situations, only one protective action needs to be implemented, while 
in others, numerous protective actions should be implemented. Many 
factors should be considered when deciding whether or not to order a 
protective action based on the projected dose to a population. For 
example, evacuation of a population is much more difficult and costly 
as the size of the population increases.
(2) Protective Action Guides (PAGs)
    A PAG is the projected dose to a reference individual, from an 
accidental or deliberate release of radioactive material, at which a 
specific protective action to reduce or avoid that dose is recommended. 
Thus, protective actions are designed to be taken before the 
anticipated dose is realized.
    The Environmental Protection Agency (EPA) has published PAGs in the 
``Manual of Protective Action Guides and Protective Actions for Nuclear 
Incidents'' (EPA 400-R-92-001, May 1992), in coordination with the 
Federal Radiological Preparedness Coordinating Committee (FRPCC). The 
PAGs presented in this manual, hereafter referred to as the 1992 EPA 
PAGs, are non-regulatory. They are designed to provide a flexible basis 
for decisions under varying emergency circumstances. The 1992 EPA PAGs 
meet the following principal criteria and goals: (1) Prevent acute 
effects, (2) reduce risk of chronic effects, and (3) require 
optimization to balance protection with other important factors and 
ensure that actions taken result in more benefit than harm.
    The 1992 EPA PAG Manual, however, was not developed to address 
response actions following radiological or nuclear terrorist incidents 
and does not address long-term cleanup. The 1992 EPA PAG Manual was 
written to address the kinds of nuclear or radiological incidents 
deemed likely to occur. While intended to be applicable to any 
radiological release, the 1992 EPA PAGs were designed principally to 
address the impacts of commercial NPP accidents, the worst type of 
incident under consideration at that time. This is important for two 
reasons: Commercial nuclear power plant accidents are almost always 
signaled by preceding events, giving plant managers time to make 
decisions, and giving local emergency managers time to communicate with 
the public and initiate evacuations if necessary. In addition, the 
suite of radionuclides present at nuclear power plants is well-known, 
and is dominated by relatively short-lived isotopes.
    The 1992 EPA PAG Manual provides a significant part of the basis of 
this document and should be referred to for additional details. In 
deriving the recommendations contained in this Guidance, new types of 
incidents and scenarios that could lead to environmental radiological 
contamination were considered. The interagency working group determined 
that the 1992 EPA PAGs for the early and intermediate phases, including 
emergency responder guidelines, are also appropriate for use in RDD and 
IND incidents. This Guidance is intended to supplement the 1992 EPA PAG 
Manual for application to RDD and IND incidents, including providing 
new late phase guidance.
    The RDD/IND Guidance provides generic criteria based on balancing 
public health and welfare with the risk of various protective actions 
applied in each of the phases of an RDD or IND incident. The RDD/IND 
Guidance is specific to radiation and radioactive materials, and must 
be considered in the context of other chemical or biological hazards 
that may also be present. Though the early and intermediate PAGs in 
this Guidance are values of dose to be avoided, published dose 
conversion factors and derived response levels may be utilized in 
estimating doses, and for choosing and implementing protective actions. 
Other quantitative measures and derived concentration values may be 
useful in emergency situations; for example, for the release of goods 
and property from contaminated zones, and to control access into and 
out of contaminated areas.
    Because of the short time frames required for emergency response 
decisions in the early and intermediate phases, it is likely there will 
not be opportunities for local decision makers to consult with a 
variety of stakeholders before taking actions. Therefore, this Guidance 
incorporates the significant body of work done in the general context 
of radiological emergency response planning from the development of the 
1992 EPA PAGs, and represents the results of scientific analysis, 
public comment, drills, exercises, and a consensus at the Federal level 
for appropriate emergency action.
    In order to use the early and intermediate phase PAGs to make 
decisions about appropriate protective actions, decision makers will 
need information on suspected radionuclides; projected plume movement, 
and radioactive depositions; and/or actual measurement data or, during 
the period initially following the release, expert advice in the 
absence of good information. Sources of such information include on-
scene responders, as well as monitoring, assessment, and modeling 
centers.
(3) Early and Intermediate Phase Protective Action Guides for RDD and 
IND Incidents
    The early and intermediate phase RDD/IND PAGs are generally based 
on the following sources: The 1992 EPA PAGs developed by EPA in 
coordination with other Federal agencies through the Federal 
Radiological Preparedness Coordinating Committee; guidance developed by 
the FDA for food and food products and the distribution of potassium 
iodide. Table 1 provides a summary of the early and intermediate phase 
PAGs for protection of the general public in an RDD or IND incident and 
key protective actions.

[[Page 45035]]



                           Table 1--Protective Action Guides for RDD and IND Incidents
----------------------------------------------------------------------------------------------------------------
                                          Protective action
               Phase                        recommendation                    Protective action guide
----------------------------------------------------------------------------------------------------------------
Early..............................  Sheltering-in-place or       1 to 5 rem (0.01-0.05 Sv) projected dose.\b\
                                      evacuation of the
                                      public\a\.
                                     Administration of            5 rem (0.05 Sv) projected dose to child
                                      prophylactic drugs--         thyroid.\c,e\
                                      potassium iodide\c,e\
                                      Administration of other
                                      prophylactic or
                                      decorporation agents\d\.
Intermediate.......................  Relocation of the public...  2 rem (0.02 Sv) projected dose first year.
                                                                   Subsequent years, 0.5 rem/y (0.005 Sv/y)
                                                                   projected dose.\b\
                                     Food interdiction..........  0.5 rem (0.005 Sv) projected dose, or 5 rem
                                                                   (0.05 Sv) to any individual organ or tissue
                                                                   in the first year, whichever is limiting.
                                     Drinking water interdiction  0.5 rem (0.005 Sv) projected dose in the first
                                                                   year.
----------------------------------------------------------------------------------------------------------------
\a\ Should normally begin at 1 rem (0.01 Sv); take whichever action (or combination of actions) that results in
  the lowest exposure for the majority of the population. Sheltering may begin at lower levels if advantageous.
\b\ Total Effective Dose Equivalent (TEDE)--the sum of the effective dose equivalent from external radiation
  exposure and the committed effective dose equivalent from inhaled radioactive material.
\c\ Provides thyroid protection from radioactive iodine only.
\d\ For other information on other radiological prophylactics and medical countermeasures, refer to https://
www.fda.gov/cder/drugprepare/default.htm, http:/www.bt.cdc.gov/radiation, or https://www.orau.gov/reacts.
\e\ Committed Dose Equivalent (CDE). FDA understands that a KI administration program that sets different
  projected thyroid radioactive dose thresholds for treatment of different population groups may be logistically
  impractical to implement during a radiological emergency. If emergency planners reach this conclusion, FDA
  recommends that KI be administered to both children and adults at the lowest intervention threshold (i.e., >5
  rem (0.05 Sv) projected internal thyroid dose in children) (FDA 2001).

    In the early and intermediate phases of an RDD or IND incident 
there may not be adequate information to determine radiation levels or 
make dose projections because there may be little or no advance notice 
of an attack, the characteristics of the RDD or IND may not be 
immediately known, monitoring equipment may not be available to make 
measurements, or there may not be time to do measurements or 
projections before emergency response actions need to be initiated. 
Therefore, to use this guide to determine whether protective action is 
needed in a particular situation, it may be necessary to compare the 
PAGs to results of a dose projection. In general, it should be 
emphasized that realistic assumptions, based on incident-specific 
information, should be used when making radiation dose projections so 
that the final results are representative of actual conditions rather 
than overly conservative exposures. It is very important that local 
officials responsible for carrying out emergency response actions 
conduct advance planning to ensure that they are adequately prepared if 
such an incident were to occur.
(A) Early Phase PAGs
    For the early phase, the 1992 EPA PAGs for evacuation and 
sheltering-in-place are appropriate for RDD and IND incidents (see 
Table 1). Early phase protective action decisions in an RDD or IND must 
be made quickly, and with very little confirmatory data. While 
sheltering-in-place should be carried out at 1 rem (0.01 Sv) 
sheltering-in-place can begin at any projected dose level.
    FDA guidance on the administration of stable iodine is also 
considered appropriate (useful primarily for NPP incident involving 
radioiodine release). The administration of other medical 
countermeasures should be evaluated on a case-by-case basis and depend 
on the nature of the event and radionuclides involved.
    The initial zone should be established and controlled around the 
incident site, as is the case for other crime scenes and hazards. This 
Guidance allows for the refinement of that area if the radiation 
exposure levels warrant such action. Advance planning by local 
officials for messaging, communications, and actions in the event of an 
RDD or IND are strongly encouraged.
(B) Intermediate Phase PAGs
    The decisions in the intermediate phase will focus on the return of 
key infrastructure and services, and the rapid return to normal 
activities. This will include decisions on allowing use of roads, 
ports, waterways, transportation systems (including subways, trains, 
and airports), hospitals, businesses, and residences. It will also 
include responses to questions about acceptable use and release of real 
and personal property such as cars, clothes, or equipment that may have 
been impacted by the RDD or IND incident. Many of the activities will 
be concerned with materials and areas that were not affected, but for 
which members of the public may have concern. Thus, the RDD/IND 
Guidance serves to guide decisions on returning to impacted areas, 
leaving impacted areas, and providing assurance that an area was not 
impacted. The intermediate phase is also the period during which 
planning for long-term site cleanup and remediation should be 
initiated.
    For the intermediate phase, relocation of the population is a 
protective action that can be used to reduce dose. Relocation is the 
removal or continued exclusion of people (households) from contaminated 
areas in order to avoid chronic radiation exposure, and it is meant to 
protect the general public. For the intermediate phase, the existing 
relocation PAGs of 2 rem (0.02 Sv) in the first year and 0.5 rem (0.005 
Sv) in any subsequent year are considered appropriate for RDD and IND 
incidents. However, for IND incidents, the area impacted and the number 
of people that might be subject to relocation could potentially be very 
large and could exceed the resources and infrastructure available. For 
example, in making relocation decisions, the availability of adequate 
accommodations for relocated people should be considered. Decision 
makers may need to consider limiting action to those areas most 
severely affected, phasing relocation implementation based on the 
resources available.
    The relocation PAGs apply principally to personal residences, but 
may impact other locations as well. For example, these PAGs could 
impact work locations, hospitals, and park lands, as well as the use of 
highways and other transportation facilities. For each type of 
facility, the individual occupancy time should be taken into account to 
determine the criteria for using a facility or area. It might be 
necessary to avoid continuous use of homes in an area

[[Page 45036]]

because radiation levels are too high; however, a factory or office 
building in the same area could be used because occupancy times are 
shorter. Similarly, a highway could be used at higher contamination 
levels because the exposure time of highway users would be considerably 
less than the time spent by residents in a home.
    The intermediate phase PAG for the interdiction of food is set at 
0.5 rem (0.005 Sv) projected dose in the first year, and the 
intermediate phase PAG for the interdiction of drinking water is set at 
0.5 rem (0.005 Sv) projected dose for the first year for RDD and IND 
incidents. These values are consistent with those now used or being 
considered as PAGs for other types of nuclear/radiological incidents.
    The use of simple dose reduction techniques is recommended for 
personal property and all potentially contaminated areas that continue 
to be occupied. This technique is also consistent with the 1992 EPA 
PAGs developed for other types of nuclear/radiological incidents. 
Examples of simple dose reduction techniques would be washing all 
transportation vehicles (e.g., automobiles, trains, ships, and 
aircraft), personal clothing, eating utensils, food preparation 
surfaces, and other personal property before next use, as practicable 
and appropriate.
(4) Late Phase Guidance
    The late phase involves the final cleanup of areas and property at 
which radioactive material is present. Unlike the early and 
intermediate phases of an RDD or IND incident, decision makers will 
have more time and information during the late phase to allow for 
better data collection, stakeholder involvement, and options analysis. 
In this respect, the late phase is no longer a response to an 
``emergency situation,'' and is better viewed in terms of the 
objectives of cleanup and site recovery.
    Because of the extremely broad range of potential impacts that may 
occur from RDDs and INDs (e.g., light contamination of one building to 
widespread destruction of a major metropolitan area), a pre-established 
numeric cleanup guideline is not recommended as best serving the needs 
of decision makers in the late phase. Rather, a process should be used 
to determine the societal objectives for expected land uses and the 
options and approaches available, in order to select the most 
acceptable criteria. For example, if the incident is an RDD of limited 
size and the impacted area is small, it might reasonably be expected 
that a complete return to normal conditions can be achieved within a 
short period of time. However, if the impacted area is large, achieving 
low cleanup levels for remediation of the entire area, and/or 
maintaining existing land uses, may not be practicable.
    It should be noted that an intermediate phase PAG is not equivalent 
to a starting point for development of the late phase cleanup process. 
However, contamination and radiation levels existing after an incident 
(e.g., concentrations, or dose rates), as well as actions already 
taken, provide practical starting points for further action and 
cleanup. The goal of cleanup is to reduce those levels as low as is 
reasonable. It is possible that final criteria for reoccupation at a 
given incident site may be either below or above the intermediate phase 
PAG dose value, since no dose or risk cap for the late phase is 
explicitly recommended under this Guidance.
    Late phase cleanup criteria should be derived through a site-
specific optimization process, which should include potential future 
land uses, technical feasibility, costs, cost-effectiveness, and public 
acceptability. Optimization is a concept that is common to many State, 
Federal, and international risk management programs that address 
radionuclides and chemicals, although it is not always referred to as 
such. The Risk Management Framework described in Appendix 2 provides 
such a process and helps assure the protection of public health and 
welfare. Decisions should take health, safety, technical, economic, and 
public policy factors into account. Appendix 3 utilizes the framework 
as a basis for RDD and IND site cleanup planning.
    Broadly speaking, optimization is a flexible, multi-attribute 
decision process that seeks to weigh many factors. Optimization 
analyses are quantitative and qualitative assessments applied at each 
stage of site recovery decision-making, from evaluation of remedial 
options to implementation of the chosen alternative. The evaluation of 
cleanup alternatives, for example, should factor in all relevant 
variables, including areas impacted (e.g., size and location relative 
to population), types of contamination (chemical, biological, and/or 
radioactive), human health, public welfare, technical feasibility, 
costs, and available resources to implement and maintain remedial 
options, short-term effectiveness, long-term effectiveness, timeliness, 
public acceptability, and economic effects (e.g., on residents, 
tourism, and business, and industry).
    Various Federal, and State agencies, along with other organizations 
(e.g., national and international advisory organizations), already have 
guidance and tools that may be used to help establish cleanup levels. 
The optimization process allows local decision makers to draw on the 
thought processes used to develop the dose and/or risk benchmarks used 
by these State, Federal, or other sources. These benchmarks, though 
developed within different contexts, may be useful for analysis of 
cleanup options. Decision makers might reasonably determine that it is 
appropriate to move up or down from these benchmarks, depending on the 
site-specific circumstances and balancing of other relevant factors.
    In developing this Guidance, the Federal Government recognized that 
experience from existing programs, such as the EPA's Superfund program, 
the NRC's standards for decommissioning and decontamination to 
terminate a plant license, and other national and international 
recommendations, may be useful in planning the cleanup and recovery 
efforts following an RDD or IND incident. This Guidance allows the 
consideration and incorporation, as appropriate, of any or all of the 
existing environmental program elements.
    The site-specific optimization process includes quantitative and 
qualitative assessments applied at each stage of site cleanup decision 
making, from initial scoping and stakeholder outreach, to evaluation of 
cleanup options, to implementation of the chosen alternative. The 
evaluation of options for the late phase of recovery after an RDD or 
IND incident should consider all of the relevant factors, including:
     Areas impacted (e.g., size, location relative to 
population).
     Types of contamination (chemical, biological, and 
radiological).
     Other hazards present.
     Human health risk.
     Public welfare.
     Ecological risks.
     Actions already taken during the early and intermediate 
phases.
     Projected land uses.
     Preservation or destruction of places of historical, 
national, or regional significance.
     Technical feasibility.
     Wastes generated and disposal options and costs.
     Costs and available resources to implement and maintain 
remedial options.
     Potential adverse impacts (e.g., to human health, the 
environment, and the economy) of remedial options.
     Short-term effectiveness.
     Long-term effectiveness.
     Timeliness.
     Public acceptability, including local cultural 
sensitivities.

[[Page 45037]]

     Economic effects (e.g., on employment, tourism, and 
business).
     Intergenerational equity.
    The site-specific optimization process provides the best 
opportunity for decision makers to gain public confidence through the 
involvement of stakeholders. This process should begin during, and 
proceed independently of, intermediate phase protective action 
activities.
    Appendix 3 provides additional details on a process that may be 
used to implement this Guidance, describing the role of the Federal 
Government and how it could integrate its activities with State and 
local governments and the public. For some radiological terror 
incidents, States may take the primary leadership role in cleanup and 
contribute significant resources toward recovery of the site.
    As explained in Appendix 3, the Incident Command or Unified Command 
should develop a schedule with milestones for conducting the 
optimization process as soon as practicable following the incident. 
While the goal should be to complete the initial optimization process 
as soon as possible following an incident (depending on the size of the 
incident), the schedule must take into consideration incident-specific 
factors that would affect successful implementation. This schedule may 
need to reflect a phased approach to cleanup and is subject to change 
as the cleanup progresses.
(5) Emergency Worker Guidelines
    The response during the early phase includes initial emergency 
response actions to protect public health and welfare in the short 
term. Priority should be given to lifesaving and first-aid actions. 
Following an IND detonation in particular, the highest priority 
missions should also include actions such as suppression of fires that 
could result in further loss of life.
    For the purposes of this Guidance, ``emergency worker'' is defined 
as any worker who performs an early or intermediate phase work action. 
Table 2 shows the emergency worker guidelines for early phase emergency 
response actions. In intermediate and late phase actions (i.e., cleanup 
and recovery), standard worker protections, including the 5 rem (0.05 
Sv) occupational dose limit, apply.

                           Table 2--Emergency Worker Guidelines in the Early Phase \2\
----------------------------------------------------------------------------------------------------------------
  Total effective dose equivalent
        (TEDE) \a\ guideline                   Activity                              Condition
----------------------------------------------------------------------------------------------------------------
5 rem (0.05 Sv)....................  All occupational exposures.  All reasonably achievable actions have been
                                                                   taken to minimize dose.
10 rem (0.1 Sv)....................  Protecting valuable           All appropriate actions and controls
                                      property necessary for       have been implemented; however, exceeding 5
                                      public welfare (e.g., a      rem (0.05 Sv) is unavoidable.
                                      power plant).
                                                                   Responders have been fully informed
                                                                   of the risks of exposures they may
                                                                   experience.
                                                                   Dose >5 rem (0.05 Sv) is on a
                                                                   voluntary basis.
                                                                   Appropriate respiratory protection
                                                                   and other personal protection is provided and
                                                                   used.
                                                                   Monitoring available to project or
                                                                   measure dose.
25 rem (0.25 Sv) \b\...............  Lifesaving or protection of   All appropriate actions and controls
                                      large populations. It is     have been implemented; however, exceeding 5
                                      highly unlikely that doses   rem (0.05 Sv) is unavoidable.
                                      would reach this level in    Responders have been fully informed
                                      an RDD incident; however,    of the risks of exposures they may
                                      worker doses higher than     experience.
                                      25 rem (0.25 Sv) are         Dose >5 rem (0.05 Sv) is on a
                                      conceivable in a             voluntarily basis.
                                      catastrophic incident such   Appropriate respiratory protection
                                      as an IND incident.          and other personal protection is provided and
                                                                   used.
                                                                   Monitoring available to project or
                                                                   measure dose.
----------------------------------------------------------------------------------------------------------------
a The projected sum of the effective dose equivalent from external radiation exposure and committed effective
  dose equivalent from internal radiation exposure.
b EPA's 1992 PAG Manual states that ``Situations may also rarely occur in which a dose in excess of 25 rem for
  emergency exposure would be unavoidable in order to carry out a lifesaving operation or avoid extensive
  exposure of large populations.'' Similarly, the NCRP and ICRP raise the possibility that emergency responders
  might receive an equivalent dose that approaches or exceeds 50 rem (0.5 Sv) to a large portion of the body in
  a short time (Limitation of Exposure to Ionizing Radiation, National Council on Radiation Protection and
  Measures, NCRP Report 116 (1993a). If lifesaving emergency responder doses approach or exceed 50 rem (0.5 Sv)
  emergency responders must be made fully aware of both the acute and the chronic (cancer) risks of such
  exposure.

    This Guidance document and the emergency worker guidelines were 
developed for a wide range of possible radiological scenarios, from a 
small RDD that may impact a single building to an IND that could 
potentially impact a large geographic region. Therefore, the 5, 10 and 
25 rem guidelines (Table 2) should not be viewed as inflexible limits 
applicable to the range of early phase emergency actions covered by 
this Guidance. Because of the range of impacts and case-specific 
information needed, it is impossible to develop a single turn-back dose 
level for all responders to use in all events, especially those that 
involve lifesaving operations. Indeed, with proper preparedness 
measures (training, personal protective equipment, etc.) many 
radiological emergencies addressed by this document, even lifesaving 
operations, may be manageable within the 5 rem (0.05 Sv) occupational 
limit. Moreover, Incident Commanders should make every effort to employ 
the ``as low as reasonably achievable'' (ALARA) principle after an 
incident. Still, in some incidents medically significant doses above 
the annual occupational 5 rem (0.05 Sv) dose limit may be unavoidable. 
For instance, in the case of a catastrophic incident, such as an IND, 
Incident Commanders may need to consider raising the lifesaving and 
valuable property (i.e., necessary for public welfare) emergency worker 
guidelines in order to prevent further loss of life and prevent the 
spread of massive destruction. Ensuring that emergency workers have 
full knowledge of the

[[Page 45038]]

associated risks prior to initiating emergency action and medical 
evaluation of emergency workers after such exposure is essential. (See 
Appendix 1 for additional discussion of ALARA.)
---------------------------------------------------------------------------

    \2\ In the intermediate and late phases, standard worker 
protections, including the 5 rem occupational dose limit, would 
normally apply.
---------------------------------------------------------------------------

    Ideally, the Incident Commanders should define and enforce the 
emergency dose limits in accordance with the immediate risk situation 
and the type of emergency action being performed (see Table 2). 
However, in the case of an attack it may not be possible to conduct 
dose measurements or projections before initiating emergency response 
activities. Therefore, it is crucial that officials responsible for 
carrying out emergency response actions in the early phase conduct 
thorough advance planning to ensure that they are adequately prepared 
if such an incident occurs. Planning should include evaluating data and 
information on possible or anticipated radiation exposures in RDD or 
IND incidents, developing procedures for reducing and controlling 
emergency responder exposures to allowable dose limits (Table 2), 
obtaining appropriate personal protective equipment (e.g., respirators, 
clothing) for protecting emergency responders who enter contaminated 
areas, and developing appropriate decision-making criteria for 
responding to catastrophic incidents that may involve high radiation 
exposure levels. Planning should also include informing and educating 
emergency workers about emergency response procedures and controls as 
well as the acute and chronic (cancer) risks of exposure, particularly 
at higher dose levels. Effective advance planning will help to ensure 
that the emergency worker guidelines are correctly applied and that 
emergency workers are not exposed to radiation levels that are higher 
than necessary in the specific emergency action.
    In addition, as part of advance planning, officials should develop 
a process for assessing hazards and for determining appropriate actions 
in incidents that may involve high radiation doses. Decisions regarding 
emergency response actions in incidents involving high radiation 
exposures require careful consideration of the benefits to be achieved 
by the ``rescue'' or response action (e.g., the significance of the 
outcome to individuals, large populations, general welfare, or valuable 
property necessary for public welfare), and the potential health 
impacts (i.e., acute and chronic) to emergency workers. The planning 
for a potential high radiation exposure incident should consider how to 
weigh the potential for and significance of the success of the 
emergency response/rescue operation against the potential for and 
significance of the health and safety risks to the emergency workers. 
Federal, state and local emergency response officials should use these 
guidelines to develop specific operational plans and response protocols 
for protection of emergency response workers.

(e) Operational Guidelines for Early and Intermediate PAGs

    Implementation of the early and intermediate PAGs may be supported 
by operational guidelines that can be readily used by decision makers 
and responders in the field. Operational guidelines are levels of 
radiation or concentrations of radionuclides that can be accurately 
measured by radiation detection and monitoring equipment, and then 
related or compared to the PAGs to quickly determine whether actions 
need to be implemented. Federal agencies are continuing development of 
operational guidelines to support the application of this Guidance, and 
other site-level decisions; therefore, they are provided here in 
overview only.
    Some values already exist that could potentially serve as 
operational guidelines for RDD and IND response and recovery 
operations, and there are various tools available to help derive 
operational guidelines for response planning. Appendix 4 presents a 
summary of the types of operational guidelines for RDD and IND response 
operations currently under development.
    Additional tools and assessment methodologies to aid in planning 
and development of operational guidelines for use with PAGs for a wide 
range of situations are available from the Federal Radiological 
Monitoring and Assessment Center (FRMAC). These tools and methods are 
written to support FRMAC operations during radiological and nuclear 
emergency responses. The FRMAC manuals provide detailed methods for 
computing Derived Response Levels (DRLs) and doses based on measurement 
or modeling results and suggest input parameters for various 
situations.\3\
---------------------------------------------------------------------------

    \3\ These materials and additional information on the FRMAC can 
be obtained at https://www.nv.doe.gov/nationalsecurity/
homelandsecurity/frmac.
---------------------------------------------------------------------------

    Some examples of existing values that can be used as operational 
guidelines for RDD and IND response operations and tools that could be 
used to establish site-specific operational guidelines include, derived 
response levels, derived intervention levels for food, and radiation 
levels for control of access to radiation areas.
(1) Derived Response Levels (DRLs)
    The 1992 EPA PAG Manual contains guidance and Derived Response 
Levels (DRLs) for various potential exposure pathways, including 
external exposure, inhalation, submersion, ground shine, and drinking 
water, for application in the early and intermediate phases. These 
values serve as, or can be adapted to serve as, operational guidelines 
to readily determine if protective actions need to be implemented. The 
summed ratios of radionuclide concentrations obtained through field 
measurements can be compared to the DRLs to determine whether the PAGs 
are likely to be exceeded. If concentrations of radionuclides obtained 
through field measurements are less than the DRLs, the PAGs are not 
likely to be exceeded and, thus, a protective action may not need to be 
taken.
(2) Derived Intervention Levels (DILs) for Food
    The FDA has developed Derived Intervention Levels (DILs) for 
implementation of the early and intermediate PAGs for food. These DILs 
establish levels of contamination that can exist on crops and in food 
products and still maintain dose levels below the food PAGs, and could 
therefore be used as operational guidelines for RDD and IND incidents. 
More information on DILs can be found in ``Accidental Radioactive 
Contamination of Human Food and Animal Feeds: Recommendations for State 
and Local Agencies'' (U.S. Department of Health And Human Services, 
Food and Drug Administration, August 13, 1998).
(3) Radiation Levels for Control of Access to Radiation Areas
    Additional operational guidelines for use in the early and 
intermediate phases of response are being developed for issues such as 
clearance of personal and real property, land and facility access, and 
for response actions. A DOE project supported by an interagency effort 
is developing needed tools and operational guidelines that address 
continued use, or necessary control for personal property (e.g., 
vehicles, equipment, personal items, debris) and real property (e.g., 
buildings, roads, bridges, residential and commercial areas, national 
monuments and icons) that may be impacted by an RDD or IND incident. 
The effort includes consideration of short and long term use

[[Page 45039]]

or access to areas. A DOE report \4\ is available for review, and use 
as appropriate. The report includes proposed operational guidelines and 
their technical derivation, and provides tools such as the computer 
model RESRAD-RDD \5\ for calculating incident-specific guidelines and 
worker stay-time tables for access control, and dose-based soil and 
building contamination levels to assist in the site-specific 
optimization process. The goal of the DOE report is to provide 
sufficient information to assist decision makers and responders in 
executing their responsibilities in a safe way. Appendix 4 of this 
Guidance provides a more detailed overview of the operational 
guidelines contained in the DOE draft report and their intended 
applications.
---------------------------------------------------------------------------

    \4\ Preliminary Report on Operational Guidelines Developed for 
Use in Emergency Preparedness and Response to a Radiological 
Dispersal Device Incident, DOE/HS-0001. The report and associated 
material will be available at https://www.ogcms.energy.gov.
    \5\ RESRAD-RDD is derived from RESRAD, which is a computer model 
designed to estimate radiation doses and risks from residual 
radioactive materials. The RESRAD model has been applied to 
determine the risk to human health posed at over 300 sites in the 
United States and abroad that have been contaminated with radiation.
---------------------------------------------------------------------------

Appendix 1--Planning for Protection of Emergency Workers Responding to 
RDD and IND Incidents

    The purpose of this appendix is to provide Federal, state, and 
local decision makers with information on how to prepare for, and 
implement emergency worker guidance in RDD and IND incidents. 
Because there may not be adequate information or time for 
determining radiation levels or making dose projections in the early 
phase of an RDD or IND incident, it is very important that emergency 
management officials conduct worker health and safety planning and 
training in advance to ensure they are adequately prepared if such 
an incident occurs.
    Planning should include evaluating data and information on 
possible or anticipated radiation exposures in RDD and IND incidents 
and on acute and chronic risks of radiation exposures, developing 
procedures for reducing and controlling emergency worker exposures, 
obtaining appropriate personal protective equipment (e.g., 
respirators, protective clothing) to help protect emergency workers 
who enter exposure areas, and developing appropriate decisionmaking 
criteria for responding in catastrophic incidents, such as an IND, 
that may involve high exposure levels. Planning should also include 
training and educating emergency workers about emergency response 
procedures in radiological environments, radiation exposure controls 
and the risks of exposure, particularly at higher levels. Effective 
planning and training will help to ensure that exposures to 
emergency workers are kept to the lowest radiation levels necessary 
for the particular emergency response action.
    This appendix provides information to assist local, State, and 
Federal authorities, and emergency workers in planning for 
radiological emergencies, in particular those related to terrorist 
attacks using RDDs and INDs. The appendix is not intended to provide 
comprehensive training guidance. Other information useful in the 
planning process may be available from the following organizations:
     The National Council on Radiation Protection and 
Measurements,
     the International Commission on Radiological 
Protection,
     the International Atomic Energy Agency,
     the American Nuclear Society,
     the He