Southwest Region

Southwest Region

Homeland Security Strategy

2010 - 2013

DRAFT – February 6, 2011

STATE OF COLORADO

SOUTHWEST REGION

HOMELAND SECURITY STRATEGY

APPROVALS

The Southwest Region All-Hazards Advisory Council prepared this Regional Homeland Security Strategy to develop, implement, and maintain a viable planning capability. This strategy complies with applicable state, regional, and local requirements and supports the State Homeland Security Strategy and recommendations by the US Department of Homeland Security to initiate a capability-based planning process. This homeland security strategy has been distributed internally and reviewed within the Southwest All-Hazards Region to agencies and disciplines that may be affected by its implementation. This is a “living document”; The Southwest Region All-Hazards Advisory Council reviews and updates this strategy at least annually. The update should be in accordance with guidance issued by the Colorado Governor’s Office of Homeland Security.

Approved:
Homeland Security Coordinator – Southwest Region

Approved:
Co-Chair – Southwest Region All-Hazards Advisory Council

Approved:
Co-Chair – Southwest Region All-Hazards Advisory Council

Executive Summary

This document establishes a Regional Homeland Security Strategy for the Southwest Region. In 2007, the State of Colorado submitted a revised Homeland Security State Strategy as part of a national effort to align state Homeland Security Strategies with the National Strategy for Homeland Security and National Preparedness Guidelines. The shift in emphasis to capabilities-based planning enables states to make informed decisions in determining what their priorities are and how to make efficient use of allocated resources to address those prioritized needs. The state strategy incorporates capabilities-based planning to address the wide range of threats and hazards realistically faced by Colorado’s responders and communities. This collaborative effort at all levels of state and local government outlines the direction for the state’s prevention, protection, response, and recovery efforts for the next five years (2008-2013).

Beginning in 2010, the Colorado Governor’s Office of Homeland Security has required that each of the Nine All-Hazards Emergency Management Regions submit a regional strategy that aligns with and complements the state strategy as a condition for receiving 2011 Homeland Security Grant Program (HSGP) funding. Strategies at the regional level will be more focused on local needs and priorities, based on the risks and threats that have been identified through an assessment process as most salient to the region. The strategies will be reviewed and updated by regional working groups each year, in coordination with the annual statewide Improvement Planning Workshop. This will ensure that regions remain current in measuring their progress towards achieving prioritized regional goals and objectives, as they work collectively to build a statewide infrastructure of capabilities by applying state resources effectively.

The four overarching questions that built the state strategy are the foundation of the SW Regional Strategy:

1.What are the threats?

2.How prepared do we need to be?

3.How prepared are we?

4.How do we close the gap?

In order to assist in answering these questions, annual assessments are conducted at the regional level to determine local risks, needs, and capabilities. As part of a multi-stage process, regions will identify their greatest threats, based on probability (likelihood of occurrence in that region) and consequence (estimate of losses expected) from a set of both national and state planning scenarios. The determination of the top regional threats direct the focus of enhancement of target capabilities primarily linked to mitigating those threats. Target Capability Assessments have been conducted on an annual basis since 2006. These assessments have given the regions a measure of their current level of capability and the ability to projectwhere that capability needs to be in order to achieve a pre-determined level of preparedness. These tools will provide a baseline upon which to develop regional priorities. The strategies will then provide a mechanism by which regions can prioritize their most pressing needs and map out a plan for addressing those needs.

The Regional Homeland Security Strategy will also become a key document to be used in justifying requests through regional applications for homeland security funding, beginning with the FY 2011 grant cycle. Projects submitted will tie directly back to the goals and objectives indicated in the regional strategy, providing a simple check that funding requests are contributing to accomplishing the long-range goals established by the regional capability working groups. They will also illustrate the expected progress that will be demonstrated through improvements to the target capability score as indicated on the goals and objectives matrix.

The development of the regional homeland security strategies is dependent upon local collaborative input from all disciplines and across both public and private sectors. Many of those responsible for the development of the regional strategies also contribute their time and expertise to the state’s capability working groups. At this level, more wide sweeping and broad-based statewide needs are identified, prioritized, and addressed. However, the foundation for the identification of those gaps begins locally.

The State of Colorado is committed to fulfilling its pledge to prevent, protect, respond, and recover from natural and man-made disasters, in coordination with federal efforts and as part of its mission to prepare its communities.

Table of Contents

Description of Region

Regional Coordination

Vision

Mission

Prioritization of Planning Scenarios

Regional goals

Capability Enhancement Plan

Build capacity to prevent threats to the stability of our region

Community Preparedness and Participation

Information Gathering and Recognition of Indicators and Warnings

Intelligence/Information Sharing and Dissemination

Protect communities, critical infrastructure, and key resources against threats

Critical Infrastructure Protection

Respond effectively to a natural hazard, industrial event, or a transportation event

WMD/HAZMAT Response and Decontamination

Emergency Public Information and Warning

Mass Care (Sheltering, Feeding and Related Services)

CBRNE Detection

Fire Incident Response Support

Onsite Incident Management

Citizen Evacuation and Shelter-In-Place

Emergency Triage and Pre-Hospital Treatment

Medical Surge

Responder Safety and Health

Risk Management

Emergency Operations Center (EOC) Management

Recover from the planning scenarios that may affect our communities

Structural Damage Assessment

Strengthen Homeland Security (HLS) Systems and Structures

Planning

Communications

Process of Regional Project Prioritization

Summary

1

1

Description of Region

The physical characteristics of the Southwest (SW) Colorado All-Hazards Region are extremely diverse; ragged mountains to the north and east, high desert canyon lands to the south and west, with transition zones in between. The region’s elevation ranges from 6,000 feet in the southwest to more than 13,000 and 14,000 feet in the east and north. Given the geographic diversity, the region is subject to weather extremes. During the winter, some areas receive multiple feet of snow at a time, high winds, and temperatures as low as negative -37 degrees Fahrenheit. During the summer, temperatures in the southwestern portion of the region can reach 110 degrees. When the monsoons arrive in July and August, the entire region can see torrential rainstorms multiple weeks in a row; as well as extreme thunderstorms and tornados.

The SW Region has approximately 85,625 citizens located in an area of 6,584 square miles consisting of five counties: Archuleta, Dolores, La Plata, Montezuma, and San Juan, as well as the State’s two Sovereign Nations, the Southern Ute Indian Tribe (SUIT) and the Ute Mountain Ute Tribe. Depending on location within the region, drive time to Denver can range from six hours to eight hours and drive time to Albuquerque can range from four to six hours. The region has two commercial airports and two private aviation airports. Because of remoteness, to provide service and protection, the SW Region often depends on internal resources, and resources from other states.

The region has a number of other infrastructure challenges. There are two recreational trains; one of these trains traverses an extremely remote and rugged area. Any major incident with these trains will involve a multi-state response. The region also has ski areas, three of these areas are in the region, and another is between the region and another. The extreme western part of the region is very dependent on agriculture and its associated risks. The region has a very limited power and internet feed; a single power transmission line and a single fiber optic line serve large parts of the region. The region also has an interstate high-pressure gas pipeline, and associated compressor, that feeds all of central Colorado.

The region’s economy depends heavily on tourists; other economic dependencies include agriculture and oil/gas operations. Similar to other areas of Colorado, the region’s population swells during the summer and other key holiday times. This “transient” population presents unique challenges and risk.

Because of the vegetation, elevation, and semi-arid climate of the inhabited areas of the region, urban interface/wildland fires are a large risk. The mid elevations of the region are mostly over grown forest; the low elevations are a volatile oak brush / juniper mix. Lightning startsmost of the regions wildland firesnaturally. In an average fire season, the region has at least one large wildland fire. Due to the loss of tourist revenue, every large fire has the potential to have devastating economic conquests.

All low-lying areas in the region are prone to flash flooding. The National Weather Service (NWS) uses radar, stream gauges, and rain gauges to issue products that warn of these floods. In Southwest Colorado,this is a challenge: the NWS radar system is ineffective. Many of the stream gauges are located in populated areas, not upstream, and arain gauge network does not exist.

Regional Coordination

The agencies within the SW Region established the Southwest Region All-Hazards Advisory Council (SWRAHAC) in 2005. The Council consists of emergency managers from each tribe, county, and the City of Durango as well as representation from the following disciplines: communications, hazardous materials, fire services, emergency medical services, health-care, Citizen Corps, transportation, education, law enforcement, and public health.

Annually SWRAHAC members participate in the State’s capability review process. As part of that process, SWRAHAC members set the SW Regional priorities. This is a collaborative effort to determine the best needs for the SW Region as a whole.

The SWRAHAC council conducts regular meetings at least six times per year. Each Council member receives meeting notices, and minutes from the previous meeting,via e-mail at least one week in advance of the next meeting. At least fifty percent, plus one, of the Council constitutes a quorum. A majority of the members present will be required to carry any motion.

During any large event, the region needs to be self-reliant for an extended period. Because of this, the SWRAHAC has explored functioning as a Regional Multi-Agency Coordination, if needed. The distance between the involved entities makes physically getting together a challenge, especially during winter weather events. The SWRAHAC has plans to implement a “virtual multi-agency coordination system” so members could meet and discuss current and expected situations, needs, resource, and gaps, without actually being in the same location.

Vision

Counties, Tribes, municipalities, and special districts of Southwest Colorado working together for a safer future.

Mission

The Southwest Region All-Hazards Advisory Council (SWRAHAC) is a forum to make the Southwest Region of Colorado safer, stronger, and better prepared in mitigating, preventing, responding to and recovering from all hazard events. The SWRAHAC participates across disciplines and shares resources to meet the regional vision.

Prioritization of Planning Scenarios

At the 2009 Improvement Planning Conference, the region completed a threat assessment, using a matrix of probability versus consequence for each of the National and State Planning Scenarios. This provided an illustrative tool for determining which scenarios pose the greatest threat to the region based on the individual local criteria. The region submitted a list of the top four priority planning scenarios to The Governor’s Office of Homeland Security. For the purpose of the regional strategy, the region is focusing on building capability for the two most probable scenarios.

The SWRAHAC feels the two most probable scenarios for the region are toxic industrial chemicals events and major snowstorm/blizzard events. Both scenarios represent a moderate to high threat to the region and present potentially devastating consequences for our communities.

Planning Scenario: Toxic Industrial Chemical Events: The history oftoxic industrial chemical events in the region are rare, but have been catastrophic. Oil and gas exploration, has boomed in the last 10 years, bringing with it the potential for major oil/gas-related events. Three major state highways in the region are designated as hazardous materials routes (US Hwy 160, 491 and 550). These highways function as vital east-west / north-south routes for both tourists, and commercial vehicles, as well as providing access to all of the region's tribes and counties. These highways are highly traveled, and have a number of vulnerable points (tunnels, high mountain passes, landslide / avalanche areas). These highways are the primary transportation route for a wide range of toxic industrial chemicals via commerical motor carrier. The headwaters of several major water sources that service large metropolitan areas lie within the boundaries of the region as well, and a chemical attack or spill is likely to contaminate the water for large population areas such as large cities in New Mexico and Arizona , in addition to many smaller communities.

Planning Scenario:Major Snowstorm / Blizzard Events: The probability of a major snowstorm / blizzard event in the region is frequent. Multiple major snowstorms occur every year. Every one of these events temporary isolates the five counties and two tribes of southwest Colorado from the rest of Colorado. During major snowstorms, all passes through the mountains to the North and Eastclose. Some locations, such as Silverton, will be completely isolated. Commercially, southwest Colorado has approximately three days of food, with the routine supply coming from Denver. With the exception of isolation, a major winter storm alone does not create too much concern in Southwest Colorado. The secondary events that very often accompany these storms are the concern. Our largest concern is power outages; in cold weather, the outcome could be catastrophic. Some other concerns include special needs population support, debris removal, isolation of individual communities, sheltering, and food/fuel supply. Another side consequence of the isolation is a negative impact to the economies of communities and to the overall region.

Regional goals

1. Continue to build capacity to prevent threats to the stability of our region.
   
2. Protect the Southwest Region’s communities, critical infrastructure, and key resources against likely threats.

1. Build capability to respond effectively to a natural hazard (winter storm / wildland fire), industrial event (toxic chemical), or a transportation event that is likely to threaten our region.

1. Enable the region to recover from the planning scenarios that may affect our communities.

1. Strengthen regional homeland security / emergency management structures and systems.

GOAL 1 / Continue to build capacity to prevent threats to the stability of our region.
Target Capability / Community Preparedness and Participation / TCA Score / 1.50
Target Capability / Planning / TCA Score / 4.67
Target Capability / Communications / TCA Score / 6.53
Target Capability / Information Gathering and Recognition of Indicators and Warnings / TCA Score / 3.53
Target Capability / Critical Infrastructure Protection / TCA Score / 3.38
Target Capability / Intelligence/Information Sharing and Disseminations / TCA Score / 7.23
GOAL 2 / Protect the Southwest Region’s communities, critical infrastructure, and key resources against likely threats.
Target Capability / Community Preparedness and Participation / TCA Score / 1.50
Target Capability / Planning / TCA Score / 4.67
Target Capability / Communications / TCA Score / 6.53
Target Capability / Information Gathering and Recognition of Indicators and Warnings / TCA Score / 3.53
Target Capability / Critical Infrastructure Protection / TCA Score / 3.38
Target Capability / Intelligence/Information Sharing and Disseminations / TCA Score / 7.23

*Capabilities primary to the goal are in bold

GOAL3 / Build capability to respond effectively to a natural hazard (winter storm / wildland fire), industrial event (toxic chemical), or a transportation event that is likely to threaten our region.
Target Capability / Planning / TCA Score / 4.67
Target Capability / Communications / TCA Score / 6.53
Target Capability / WMD/Hazardous Materials Response and Decontamination / TCA Score / 5.77
Target Capability / Emergency Public Information and Warning / TCA Score / 2.22
Target Capability / Mass Care (Sheltering, Feeding and Related Services) / TCA Score / 3.50
Target Capability / CBRNE Detection / TCA Score / 3.43
Target Capability / Fire Incident Response Support / TCA Score / 6.25
Target Capability / On-Site Incident Management / TCA Score / 4.56
Target Capability / Citizen Evacuation and Shelter-In-Place / TCA Score / 1.45
Target Capability / Emergency Triage and Pre-Hospital Treatment / TCA Score / 5.09
Target Capability / Medical Surge / TCA Score / 3.65
Target Capability / Responder Safety and Health / TCA Score / 4.43
Target Capability / Risk Management / TCA Score / NR
Target Capability / EmergencyOperationsCenter Management / TCA Score / 2.67
GOAL4 / Enable the region to recover from the planning scenarios that may affect our communities.
Target Capability / Community Preparedness and Participation / TCA Score / 1.50
Target Capability / Planning / TCA Score / 4.67
Target Capability / Structural Damage Assessment / TCA Score / 4.11
GOAL 5 / Strengthen regional homeland security / emergency management structures and systems.
Target Capability / Community Preparedness and Participation / TCA Score / 1.50
Target Capability / Planning / TCA Score / 4.67
Target Capability / Communications / TCA Score / 6.53
Target Capability / Emergency Public Information and Warning / TCA Score / 2.22
Target Capability / On-Site Incident Management / TCA Score / 4.56
Target Capability / EmergencyOperationsCenter Management / TCA Score / 2.67
Target Capability / Intelligence/Information Sharing and Disseminations / TCA Score / 7.23

*Capabilities primary to the goal are in bold