EMERGENCY OPERATIONS CENTER REPLACEMENT AND … Learned Rev 2 08-28-01.pdfProject Execution Plan Emergency Operations Center Replacement and Relocation Revision 2 iii August 28, 2001

DOCUMENT NO. CGRP-0012-016, R2

Los Alamos National Laboratory Los Alamos, New Mexico 87545

LESSONS LEARNED

Revision No: 2 Revision Date: August 28, 2001

EMERGENCY OPERATIONS CENTER REPLACEMENT AND RELOCATION

LIP 01-D-702 LANL PROJECT I.D.

NO. 100143

Prepared by University of California

Los Alamos National Laboratory Los Alamos, New Mexico 87545

Project Execution Plan Emergency Operations Center Replacement and Relocation

Revision 2 ii August 28, 2001

TABLE OF CONTENTS I. INTRODUCTION...................................................................................................... 1 II. CERRO GRANDE FIRE LABORATORY RECOVERY LESSONS TO BE LEARNED

REPORT................................................................................................................... 1 A. Facility.................................................................................................................... 1

i. Backup ................................................................................................................ 1 ii. Communications ................................................................................................. 2 iii. Layout ................................................................................................................. 4 iv. Site...................................................................................................................... 7

B. LANL...................................................................................................................... 8 i. Authority .............................................................................................................. 8 ii. Exercises............................................................................................................. 8 iii. Organizational ..................................................................................................... 9 iv. Procedures.......................................................................................................... 9 v. Programmatic.................................................................................................... 13 vi. Risk Management ............................................................................................. 15 vii. Staff................................................................................................................... 16 viii. Training ............................................................................................................. 16

C. Los Alamos County.............................................................................................. 18 i. Authority ............................................................................................................ 18 ii. Exercises........................................................................................................... 18 iii. Organizational ................................................................................................... 18 iv. Procedures........................................................................................................ 18 v. Programmatic.................................................................................................... 18 vi. Risk Management ............................................................................................. 18 vii. Staff................................................................................................................... 19 viii. Training ............................................................................................................. 19

III. EOC TOURS .......................................................................................................... 19 A. Albuquerque EOC: Tour Conducted November 29, 2000.................................... 19 B. New Mexico State EOC: Tour Conducted October 10, 2000 ............................... 32

IV. DESIGN-BUILD RFQ/RFP PROCESS LESSONS LEARNED SESSION .............. 33 A. Lessons Learned ................................................................................................. 33 B. Notes ................................................................................................................... 36

V. TELEPHONE CONFERENCE WITH FEMA........................................................... 36 VI. HNR LESSONS LEARNED.................................................................................... 39 VII. MISCELLANEOUS LESSONS LEARNED THROUGH THE PROGRESS OF THE

PROJECT............................................................................................................... 40 A. Subject Matter Experts Feedback........................................................................ 40


Revision 2 iii August 28, 2001

Revision Log Revision

No. Approval

Date Remarks

0 04/24/01 Original Issue. 1 05/23/01 Incorporated Design-Build RFQ/RFP Lessons Learned

Session and Telephone Conference with FEMA. 2 08/28/01 Incorporated Lessons Learned following D-B Proposal

Evaluations.


Revision 2 1 August 28, 2001

I. INTRODUCTION This document records the efforts of the Replacement EOC Project team to set down lessons learned from documented lessons learned, site tours, specific lessons learned sessions, and past experiences. Specifically, the lessons learned in this document are generated from the following:

• Cerro Grande Fire Laboratory Recovery Lessons To Be Learned Report • Tours of other EOC’s • Design Build RFQ/RFP Process Lessons Learned Session • Telephone Conference with FEMA • HNR’s Design Experience • Miscellaneous Lessons Learned Through the Progress of the Project

The document is organized to take the reader through specific lessons learned and correlate them to the new EOC. Engineered solutions can address some of the lessons learned, and these are primarily listed in the Facility section of the Cerro Grande Fire Laboratory Recovery Lessons To Be Learned Report (CGF Report), Tours of other EOCs, and HNR design experience sections. Others are programmatic in nature, and they pertain to LANL and Los Alamos County. These are primarily identified in the LANL and Los Alamos County sections of the CGF Report respectively and have been addressed to the extent possible in this document. II. CERRO GRANDE FIRE LABORATORY RECOVERY LESSONS TO

BE LEARNED REPORT The Cerro Grande Fire Laboratory Recover Lessons To Be Learned Report, November 28, 2000, was prepared to give a critique of the functional recovery roles, responsibilities, and operations the Laboratory performed during the emergency recover period resulting from the Cerro Grande Fire.

A. Facility

i. Backup

1. (LANL) Consider a secondary location for the EOC should the primary location become jeopardized during an emergency. The White Rock Training Center was used as a secondary location during the Cerro Grande Fire. The secondary EOC has been established at TA-49. During the

Cerro Grande Fire event, the secondary EOC was occupied by the fire fighters prior to the requirement to evacuate the primary EOC. The tertiary EOC is identified at the DOE/LAAO building, which was included in the town site evacuation. Advanced planning beyond three levels is not a typical requirement and is not considered a planned action under this project.



ii. Communications

1. (LANL) The secondary location for the EOC should be equipped with the same physical resources as the primary location. Resources are not available to establish or maintain two fully

equipped EOC’s. An attempt to equip and maintain both the primary and secondary would degrade the mission of this project – to establish a complete and useable primary EOC. Other options such as better equipment for the secondary or establishment of a “Mobile Command Center” could be considered should additional funds become available.

2. (LANL) A high level of difficulty existed for the EOC staff to

communicate in a timely manner. An $8,000K Line Item Project has been established under the

Cerro Grande Rehabilitation Project. The intent of this project is to improve communications and the ability to retrieve data at the new EOC.

3. (LANL) System was problematic during the emergency. There were

problems with telephone lines, cell phones and pagers. There were not enough radios, pagers or cell phones initially. The repeater station went down on Pajarito at one point. There are several good lessons learned rolled into this one

statement. First the issue of telephones – this has been considered since the inception of the project. Currently the planning basis is for somewhere on the order of 300+ communications lines to be brought into the EOC. In addition, there are other CGR tasks “Communications equipment, satellite access, charger and cell phones” and “Communications equipment – Emergency Paging and Radios” to provide satellite telephone access during an emergency and increase the cache of cell phones, pagers and radios.

4. (LANL) Not all managers have pagers or cell phones.

See # II.B. 3 above. In addition, as part of the new LANL emergency management plan, a requirement now exists for Group Leaders and above to keep the EOC apprized as to a means of contacting these individuals.

5. (LANL) It was difficult to call into the EOC. The number was often

busy. See # II.B.3 above.



6. (LA County) The major EOC communications elements, i.e. LANL communications including amateur radio group, fire, police and LANL security, need to be located as close as possible to the Emergency Managers/Facilitators. The new EOC will be a joint LANL/LA County facility with a joint

police, fire and 911 dispatch center.

7. (LA County) Although the LANL EOC communications facility has (and will have in the joint EOC) a large number of radios to serve a variety of needs, both the Fire and Police Tactical Centers will require similar and sometimes duplicative, radios. Rather than equip everyone with separate radios, a multi-band

radio (5Mhz to 2Ghz) radio is being purchased and installed as part of the “Multi-Channel Communications” LIP.

8. (LA County) Radios, if they must be used occasionally in the main

areas, should be equipped with earphones. As a part of the planning for the new EOC, areas that are expected

to have high radio traffic have been separated from those areas that require very little radio use. In addition, the new EOC will have earphones available for use with radios should it be required.

9. (LA County) Telephone calls should be received directly by each

functional group. Each functional group should have at least one in coming and one non-published outgoing phone number, as well as, a modem line. A pool of unmarked outgoing lines shared by all organizations will

be available in the new EOC. During an actual event, specific rooms have been established for each individual function with spare communications lines available.

10. (LA County) A Public Information Center or phone bank managed by

LA County using both employees and volunteers should be provided. This will remain as a LA County function. The PIC is not part of the

new EOC.

11. (LANL) Access to computers, printers, Internet, e-mail and other electronic communications devices for all EOC personnel. Point in focus was the lack of a printer for PA, lack of computers in the primary work area lack of workspaces for personnel to work, communicate, access information and share information with others. Security will require passwords and other security measures. In considering the number of data ports that should be made

available in the new EOC, these exact issues were discussed. Computers will be permanently established in the new EOC as well as several unused computer ports in each area. In addition,



workspace to be provided is considered adequate for an event of the size of the CG Fire.

12. (LANL) The use of a recovery building, separate from the EOC, added

to the confusion of who was doing what to whom. Telephone lines should have been programmed to allow easy transfer of recovery calls to the recovery center. A large room integral to the new EOC should be dedicated to recovery efforts. This will allow for the necessary close communications that must exist between EOC and Recovery personnel. The design of the new EOC includes a telephone switching

capability as well as telephone answering personnel. In addition, the new EOC includes space for three conference rooms that could be utilized to facilitate recovery should it be deemed necessary after the emergency.

13. (LANL) Remote cameras are needed at strategic positions to provide

visual information. Possible use of web cameras as of the type used for ARGUS might be used to provide camera information. Dedicated landlines may also be used. Ideal locations would be key intersections with a portable camera to be positioned at the area of interest. This option is being considered as a part of the “Multi-Channel

Communications” (MCC) LIP as well as several other types of mobile surveillance options being considered under smaller CGR tasks.

14. (LANL) If a caravan is required to relocate personnel from one location

to another radios must be provided to each vehicle in the caravan. If radios are available at the time they will be assigned to each

vehicle. If radios are limited, the lead and tailing vehicles will have a radio.

15. (LANL) Group/Division/LANL managers must have a means of

receiving messages when not in the EOC. This can be accomplished via pager/cell phone, but will require a cache of equipment to be issued/used during an emergency. See # II.B.4 above.

16. (LANL) Databases of all types must be available and stand alone in the

EOC. Communications of all types were rendered useless during the fire. A specific example was a lack of access to GIS data on utilities and the ACIS data for chemical locations. This is being considered as a part of the “MCC” LIP.

iii. Layout



1. (LANL/LA County) The fire became regional in magnitude involving crossover jurisdiction of several entities. Face-to-face communication was/is crucial. The size of the existing EOC did not permit residency of the additional crucial agencies to conduct these types of communications. It was often necessary to drive to Incident Command, set-up at TA-49, to communicate. The Red Cross, State Police, State Environment and National Guard for instance should have had spaces off the main floor of the EOC with adequate communications to meet their needs. This is being addressed in the design of the new EOC. Each

responding agency will have dedicated space available. In addition, a multi-band radio (5Mhz to 2Ghz) radio is being purchased and installed as part of the “Multi-Channel Communications” LIP.

2. (LANL) Technical discussions about site specifics on Lab property

were distracting to the routine operation of the EOC because there was no separate additional space in which to retire and conduct these discussions. A separate Emergency Technical Support Center (ETSC) and

separate conference rooms are planned for the new EOC.

3. (LANL) There was not adequate space in the existing EOC to conduct briefings, which required a large audience of people. See # II.C.2 above.

4. (LANL) Additional space was required to set-up Lab site specific,

internal operation EOC’s. This would have reduced confusion and avoided conflicting directives among support groups working during the fire. See # II.C.2 above.

5. The lack of adequate additional space made for a very noisy work

environment to exist within the existing EOC. See # II.C.2 above. In addition, sound attenuation attributes are

being considered as a part of the design of the new EOC.

6. (LANL) It would be beneficial for the new EOC to be available for use during an emergency that does not originate or immediately endanger Lab property. As the new EOC is to be a joint EOC, it will be available during all

emergencies.

7. (LA County) The Primary or Policy Group should be placed at the front of the room, preferably in a sound-resistant setting (as exemplified by the Albuquerque EOC). The group should have easy access to and by



the Emergency Managers/Facilitators and other members of the EOC cadre. The new EOC design is addressing this issue.

8. (LA County) The major EOC communications elements, i.e. LANL

communications including amateur radio group, fire, police and LANL security, need to be located as close as possible to the Emergency Managers/Facilitators. Police and Fire intend to also use their spaces as tactical control centers in addition to the communications function. All four spaces should not be located in the main EOC room, but should have windows that can be opened to audibly access this area when necessary. These spaces have been considered in the design of the new EOC.

The ability to create a secure environment may override the ability for window access to non-secure spaces.

9. (LA County) LANL and County Emergency Managers/Facilitators

should be centrally located, between the Policy Group and the Secondary/Operational Group. Each Emergency Manager/Facilitator should have an operating position with a phone and remote radio capability. There should no physical separation between the Emergency Managers/Facilitators and the Secondary/Operational Group. This has been considered and provided for in the design of the

secondary EOC.

10. (LA County) Wall covering the new EOC should be selected with a noise absorption/dampening characteristic. Light level must be controllable. Sound attenuation attributes are being considered as a part of the

design of the new EOC. In addition adjustable lighting is part of the current Functional and Operational Requirements document.

11. (LA County) Each county functional group, e.g. Public Works, should

have seating for at least two persons and adequate workspace accommodations. See # II.C.9 above.

12. (LA County) Maximum shift duration for EOC personnel should be

twelve hours. Fully equipped break rooms are a necessity. Sleeping and shower facilities should be provided for identified EOC personnel. LANL cannot set policy for LA County shift durations. However,

sleeping and shower accommodations are part of the new EOC design.



13. (LA County) The concept for use of multi-purpose rooms and spaces is acceptable. However, it has been determined that LA County will require rooms not subject to these applications. This comment was discussed at length during the Design Charrette

that included participation by representatives of LA County. With the exception of the primary and secondary EOC, all spaces will be available for dual use.

14. (LANL) More general office space was required for personnel

performing administrative functions. The design of the new EOC includes general use office space.

15. (LANL) Many cold storage places were needed to cool drinks, store

cooked food, hold purchased refrigerated snacks and in general provide an organized meal and snacks for the workers. The design of the new EOC includes a fully functional kitchen/break

area.

16. (LANL) A food preparation area is required to keep meals warm and cooked when required. A space to eat that can be cleaned and is sanitary is also required. Freezers, stoves, soda coolers, ice machine, pantry, microwave, cold water dispenser, sink, dishwasher, coffeepot, all of commercial construction, should be a part of the food service/lounge area. See # II.C.15 above. In addition, the F&OR document includes the

requirement for commercial grade appliances.

17. (LANL) Electronic whiteboards are needed in the primary and secondary work areas and in all breakout rooms to capture ideas and plans so that can be saved. This requirement has been included in the current F&OR.

iv. Site

1. (LANL) Locate EOC off-site from lab property to prevent it from

becoming compromised during an emergency that would require a complete evacuation. An extensive siting exercise has been completed for the new EOC.

The siting included considerations such as risk, hazard circles, communications, utilities, etc.

2. (LANL) Remote cameras are needed at strategic positions to provide

visual information. Possible use of web cameras as of the type used for ARGUS might be used to provide camera information. Dedicated landlines may also be used. Ideal locations would be key intersections with a portable camera to be positioned at the area of interest.



See # II.B.13 above.

B. LANL

i. Authority

1. There were multiple support and emergency personnel working at the Lab throughout the fire. It was not always clear what the formal protocol of authority was. For example, FWO Management did not have authority over Facility Managers, which made it difficult direct emergency activities related to them. It is therefore suggested documentation be prepared which will establish chain of command from the EOC to the support organizations. The documentation will also need to identify levels of responsibility and authority for each location. Chain of command exists in the current LANL Emergency

Management Plan, which is updated annually.

2. The EOC should manage and delegate authority as appropriate. See # III.A.I above.

ii. Exercises

1. Evacuation of EOC from primary to secondary location.

The Five Year Exercise plan is updated annually. This comment will be considered as a part of the next annual update.

2. Simultaneous operation of the EOC at the primary and secondary

locations. The function of a secondary EOC is to operate when the primary is

not available. Currently exercises are conducted at both.

3. Use of new and existing procedures. This is currently included in every exercise.

4. Yearly EM&R with all EOC staff.

The annual exercise meets this requirement.

5. Coping with fatigue, stress, scope of responsibility and workload of an emergency situation. ESH-2 and S-8 are familiar with these factors. ESH-2 and S-8

have been trained on how to make these observations and will provide assistance as required.



iii. Organizational

1. There were times when conflicting directives were executed from the EOC and other times when directives were not executed through the EOC. EOC directives are established and documented through the LANL

Emergency Management Plan. As this document is updated annually and approved by DOE/AL, compliance with this plan will continue to be paramount in the operation of the EOC.

2. It was often important for the multiple support and emergency groups

to communicate among each other, as well as with the EOC, to accomplish directives that involved multiple utilities and sets of skills. The EOC did not have the resources to track or coordinate this detailed information efficiently. Most of the support groups were required to set-up local EOC’s of their own to coordinate these kinds of communications. Adequate space and communication systems have been included

in the design of the new EOC.

3. It is suggested that support and emergency organizations have physical representation within the EOC. This will ensure that any request will be executed through a single point of contact. It will also eliminate multiple sets of directions being given from multiple individuals. See # III.C.2 above.

iv. Procedures

1. Evacuation of EOC from primary to secondary location. Procedure should include criteria for identifying and executing key decision points for relocation requirements and method for recording decisions as they are executed. The existing LANL Emergency Management Plan (EMP) allows the

latitude to make these decisions on a case-by-case basis. No change to this operating philosophy is anticipated.

2. Simultaneous operation of the EOC at the primary and secondary

locations. See # III.B.2 above.

3. Notification-by-telephone procedures were not followed at times.

Procedures exist for notification by telephone, provided that the appropriate telephone numbers are available. As part of the new LANL emergency management plan, a requirement now exists for



Group Leaders and above to keep the EOC apprized as to a means of contacting these individuals.

4. A standard method of recording communications or information should

be established. During the fire most communication or information was hand-written in individual files or notebooks, while at other times both were documented with “post-it” notes. A date and time stamp must be placed on the communications list to keep them current. An Admin Staff Member shall put out a new list at least every six hours or when there are revisions. All logs, action items, notification forms, paper records must be picked up daily by the administrative staff and filed. Individuals needing copies of these shall be provided with copies. The Admin Staff for the official records shall keep originals. Standard forms exist for recording information in the EOC. Use of

the forms was not sufficiently reinforced but will be in the future. Additionally, for prolonged incidents, special binders will be provided and all notes will be logged chronologically.

5. A standard method of reporting revised information to the EOC.

Reports to the EOC can be generated from anyone. The burden of ensuring a particular format lies with the person receiving the information. EOC personnel will attempt to standardize information as it is received.

6. Provide a space on the INFO/ACTION/REQUEST form for date entry.

This will be accomplished during the next revision.

7. A standard method of tracking where personnel are located. Discussions are underway to identify the best way to accomplish

this.

8. Existing formal procedures should be reviewed and modified where appropriate. See # III.C.1 above. In addition, the dispositions presented in this

Lessons Learned document have been prepared in conjunction with Group S-8, the group responsible for the operation of the EOC.

9. Roles and responsibilities of primary and secondary EOC personnel,

along with support and emergency personnel should be clearly identified. Roles and Responsibilities are addressed in the Emergency

Management Plan Implementing Procedures (EMPIP). These will be expanded during the annual update of the EMPIPs.



10. A standard method for identifying points at which actions and reporting procedures get passed out of the EOC to another group (such as JCNNM or PTLA). When the Emergency Management Team identifies a tasking, the

individual responsible for accomplishing this task is the individual responsible for directing that it be accomplished. This has worked well in the past and no change will be made to the process at this time.

11. Outline the chain of command for decisions in the EOC and identify

which decisions are within the scope of the EOC and which are not. Basically, this is addressed in the EMP and the EMPIPs. It is also

addressed in training sessions conducted for the Emergency Management Team. By DOE Order, the Emergency Director is in charge of emergency response and recovery. All decisions ultimately fall under the authority of the Emergency Director.

12. Interface and relationship between the EOC and FCR.

This interface does need to be formally established through procedures. This effort will be worked between FWO and S-8.

13. Types of information that will be available to the EOC and the methods

of their delivery. Efforts are underway to identify the types and sources of data that

need to be available in the EOC. Design of the new EOC will allow significant increased data storage capabilities.

14. Regular gathering and updating of Lab risk management information

so that it may be on-hand for emergency purposes. Significant amounts of data are already stored in the EOC.

However, the Emergency Management Team will be polled to identify any additional information that would assist them in performing their function. This information will be included in the data to be stored in the new EOC.

15. A standard method for logging calls or monitoring various radio bands.

Currently, a Dictaphone machine records most phone and radio traffic coming into the EOC. The administrative staff uses a standardized log to record incoming calls.

16. A standard method for identifying forms of communications and radio

bands used by outlying groups. The new EOC will provide workspace for many outside agencies.

Efforts are underway to identify their radio frequencies so that we will have the ability to access those frequencies during an emergency.



17. Identify decision points for who will be notified by the EOC in case of an emergency and how those individuals can provide a contact number to the EOC in an evacuation situation. See # III.B.4 above.

18. Identify managers who need to be notified if utilities or other

infrastructure impacts occur at their facilities. Procedures already exist to do this.

19. Clarify lines of communications required between the EOC and

personnel in the field and off-site. See # III.D.11 above. Additionally, S-8 will attempt to find out

exactly what this means. We believe lines of communication already exist and previous exercises have shown them to be functional.

20. Pre-approved method of efficiently securing electronic equipment,

assistance and parts during an emergency. Requirements are based on the situation. Procedures exist to

receive pagers and radios from the radio shop if needed. US West supported us with needed equipment throughout the recent fire. Resources are limited.

21. Declarations of Emergencies and Termination of Emergencies need to

be provided to all levels of LANL and LA County that need the information. Written copies of these must be made permanent part of the records of the event. Copies should be provided to the necessary individuals via e-mail, fax or other written correspondence as required. This will be addressed when the procedures and checklists are

reviewed for the new occupancy.

22. Formal shift turnover requirements and checklist for all positions within the EOC. See III.D.21 above.

23. Volunteers who have been trained must be allowed access to the

EOC. Activation of the list must be done early. Agreed.

24. Badges, which allow movement within the townsite, LANL and the

community, must be issued and recognized by the controlling authorities. This is an event specific and may have to be worked out with law

enforcement agencies.



v. Programmatic

1. The EOC needs to be capable of functioning independently or simultaneously at the primary and secondary locations. The current DOE Approved LANL Emergency Management Plan

states that either one or the other will be operating at one time – not simultaneously.

2. “Real-time” information for regional weather and fire conditions, current

status of utilities and facilities, locations of personnel working in the field were all virtually impossible for the EOC to access. The Multi-Channel Communications task will provide the most

current facility information at the time that it was updated. As far as real time weather/fire/event information, there are two proposed Cerro Grande Rehabilitation projects that will tie directly to the EOC with the express intent of providing this type of information. They are; Task #0062 – Drone w/Surveillance Camera, and Task #0068 –Standing Contracts for Photo Reconnaissance & Helicopter Services.

3. Work schedule for staffing positions within the EOC needs to be

prepared with consistency regarding personnel and their associated shift duration to assure proper rest, routine and overall stability of the EOC. See III.B.5 above. In addition, schedules are dependent on

available resources.

4. Food was not only needed at “normal” mealtime hours, but at midnight when some of the personnel were rotated. See # II.C.15 above.

5. Supplies on-hand were not sufficient to support routine operation of a

full-time staff of the EOC. Paper usage at the EOC approached 6 to 10 cases depending on the outside support for fire camp and others that perform briefing for large audiences of people. Hygiene supplies including soap, toothpaste, shaving equipment, aspirins, ant-acids, etc. were sorely needed. Space has been identified in the design of the new EOC to

accommodate storage of these types of items

6. An upgraded system of ensuring that individuals are badged for the EOC must be used. The badge reader system must be robust and must identify not only by name, but organization as well. The entire existing system must be refined. The badge reader currently under consideration consists of a

biometrics interface tied to the new LANL ARGUS security system



for secured access and proximity badge access to the uncleared areas.

7. The recording of the telephone/radio tape must be retained in the

EOC. The removal of this record should only be a copy and not the primary record. Purchase of a second machine for redundancy will allow the copying of the record without loss of the primary recording function. Agreed. Proposed recording equipment to be provided by the new

EOC project will allow copies of communications to be made available to requesting agencies.

8. Personnel required in the field must have the appropriate equipment to

be located in the field. This will require the appropriate boots, pants, shirts, headgear, etc. contingent to the type of emergency. The emergency could be fire, chemical release, radiological or biological. Personnel residing within the EOC during emergencies of this type require protection as well. This is being addressed in the CGR task “Specially Equipped

Vehicles”. Note that the title given the task is somewhat misleading in that the approved scope of the task is to purchase just this type of “special” equipment to have available for vehicles in the field during emergencies.

9. Keys and access to all LANL buildings is critical. This is a continuing

problem that was made worse by the fact that most people who held keys were evacuated. Agreed. This is an institutional issue, not an EOC issue. Access

during emergencies would not require a key if one is not available.

10. If a caravan is required to relocate personnel from one location to another radios must be provided to each vehicle in the caravan. A map of the route and location of destination must be provided. See # II.B.14 above.

11. The existing EOC has proven inadequate to sustain 24 hour operations

due deficiencies in the following areas which are not listed elsewhere within this text: All of these concerns are address in the design of the new EOC as

follows:

• Sanitary lift station requires power to remove waste. − All electrical systems in the new EOC will be put on emergency

power



• No formal sleeping areas are available within the EOC. − Adequate space will be provided in the design of the new EOC

to provide for sleeping areas. In addition, space is provided for storage of sleeping supplies such as cots, blankets and pillows.

• No area is available for R&R. − A kitchen and lounge are provided in the design of the new

EOC.

• Too few restrooms/showers are available for occupants during an emergency.

− The design of the new EOC will meet the requirement for the maximum number of occupants.

• There is only one access door plus a ½ door. − The design of the new EOC will not only meet all applicable

access to egress requirements, but all life safety issues as well.

• No ADA access exists. − Compliance with ADA is a requirement of the design of the new

facility.

• A secure water supply does not exist. Loss of water main would eliminate sanitary and culinary water availability.

− Storage space has been identified for water.

• Ventilation system does not provide proper filtration to eliminate smoke and gases to enter the facility.

− In addition to HEPA filtration, the HVAC system will be designed for 100% recycled air.

• Current physical location places EOC within hazard circle of

moderate hazard facilities. − The selected site for the new EOC eliminates this concern.

vi. Risk Management

1. The EOC did not have sufficient site-specific information on-hand for

the various areas endangered by the fire or placed in jeopardy by the evacuation. Information was needed regarding hazards (chemical, radiological, mechanical and other), valuable equipment or high priority projects, inventory, sealed sources, resources (heavy equipment available that could be used for building fire breaks), utility locations, and procedures and decision points for shutting down systems, TSRs/ABs/SARs for nuclear facilities. Essential facilities had not been identified. Essential people for those facilities for those facilities had not always been identified. There were no procedures for moderate hazard facilities. Some of this information was gathered by phone



from programmatic and facility managers during the emergency, which required a great deal of time and effort. See III.E.2 above.

vii. Staff

1. Sufficient number of staff will be required to effectively operate an EOC

at primary and secondary locations and for extended periods of time. See III.E.3 above. In addition all positions and staffing levels will be

reviewed with the joint operation of the new EOC prior to its completion.

2. More personnel were required to assist with access to the front door

and with administrative functions. See III.G.1 above.

3. A full-time food coordinator was needed to obtain the food, drinks,

meals and snacks that were required. See III.G.1 above.

4. Full-time personnel were needed to maintain the computer and other

electronic equipment. A least three people were required to perform minor repairs. See III.G.1 above.

5. An experienced person to staff the radio full-time. A person in training

may perform this function, but should not be left alone. See III.G.1 above.

6. During back-shift, the minimum staffing required should be a radio

operator/recorder, a telephone operator and a roving person to perform miscellaneous request. At 6:00 am there should be two additional persons to start the daily activities. See III.G.1 above.

7. Volunteers for miscellaneous EOC positions as identified during the

fire. See III.G.1 above.

viii. Training

1. Evacuation of EOC from primary to secondary location.

See III.D.1



2. Simultaneous operation of the EOC at the primary and secondary locations. See III.E.1

3. Use of new and existing procedures.

Training will be provided as new and revised procedures are implemented.

4. Training was not found to adequate for all Primaries and Secondaries.

Sufficient numbers of Primaries and Secondaries should be properly trained in all aspects of the EOC operations. DOE Orders require that three individuals be trained in each

position. This proved to be inadequate for an extended EOC operation. Training three deep meets the requirements of most emergencies.

5. More personnel need to be trained and qualified for Incident

Command. Group S-8 is in the process of hiring an additional Incident

Commander

6. A general consensus existed that not all personnel were properly qualified to perform in a given role, even though an individual’s position dictated particular responsibilities. If the person’s position dictated particular responsibilities, that

person was apparently hired to fill that position. Therefore that individual was deemed qualified at the time of their hire/promotion. The emergency director has the authority to reassign individuals, as he/she deems appropriate. If the emergency director chose not to make the change, the conclusion must be that the “general consensus” was not shared by the emergency director.

7. EM&R training performed annually should include everyone involved in

staffing the EOC. See III.H.4 above.

8. How to adequately cope with fatigue, stress, scope of responsibility

and workload of an emergency situation. See III.B.5 above.

9. At least three full-time personnel to perform minor repair of computers

and other electronic equipment. See III.G.1 above.

10. Radio Operator.



See III.G.1 above.

11. Volunteers for miscellaneous EOC positions as identified during the fire. To support an event the size of the Cerro Grande Fire, extensive

OJT was required.

C. Los Alamos County

i. Authority

1. See section II, C. Layout, above. ii. Exercises

1. N/A iii. Organizational

1. See section II C. Layout, above. iv. Procedures

1. N/A v. Programmatic

1. Reliance on electronic graphic projections often became a problem. It is difficult to transform raw information into a graphic display, especially when only a few people know what data is significant or how to produce the display. White boards were discovered to sill play a major role in this area. The installation of both standard and electronic whiteboards is a

common theme throughout the design requirements of the new EOC.

2. Electronic note or log keeping was found to be ineffective within the

EOC. LA County found it much more practical to require each EOC functional element to maintain its own log of information received and disseminated and actions taken. The LA County Administrator found the EOC electronic log to be incomplete and often not current. Record keeping in the new EOC will be by position. Either

electronically or by hand. Training will be provided in both cases. vi. Risk Management

1. N/A



vii. Staff

1. See section II, C. Layout, above. viii. Training

1. N/A III. EOC TOURS

A. Albuquerque EOC: Tour Conducted November 29, 2000

The following is a consolidated list that incorporates all comments resulting from the Albuquerque Emergency Operations Center (A-EOC) tour. For ease of use, the format is structured to crosswalk to the Functional and Operational Requirements (F&ORs) document. Where appropriate, the comments are arranged by A-EOC room with a subtitle and room number that corresponds to the equivalent room in the LANL-EOC F&OR. Comments were received from the following tour participants: P. Bove, D. Dorsey, L. Duran, R. Hall, D. Hansen, D. Howard, D. Jones, J. Lacey, B. McConaghy, K. Orr, B. Purtyman, G. Ramsey, T. Roberts and G. VanTiem. 1.1 EOC-Main Room/PRIMARY EOC In general, people liked the layout of the Primary EOC, the glass partition separating the Primary EOC and Secondary EOC, the large screen TVs, the rear projection, the rolling white boards and data display screens, and the clocks. People also liked the screens/white boards/TV set up. There were numerous comments on some specific items/systems in the Primary EOC. The following list provides details regarding likes, dislikes, and recommended improvements. Glass Partition Likes – The glass partition provided a good sound barrier, and allowed everyone to see all screens and TVs (and personnel located in the Primary EOC) from anywhere in the Secondary EOC and from the windows upstairs (kitchen area). Also, the doors did not squeak or stick. Dislikes – The glass enclosure, while aesthetically pleasing, lacked a certain degree of functionality. The glass doors are expensive, and appeared to be a route for escaping/incoming noise. Additionally, the seam is at eye level at some workstations, particularly at the third row back in the EOC-Secondary Room, where this seam is dead center in the field of vision for the monitors.



Recommended Improvements – The glass wall seamed very workable, but we are looking for something twice that big. Some ideas for our EOC include: (1) Build a block and gyp structure that would have better STC than either glass solution and would support a massive window if needed. (2) Make the partition a true wall with big windows to cut down on noise. (3) The bottom 42” or so could be hard wall with sound soak. The same is true of the top 6 to 8 feet. This will better attenuate sound and will eliminate the seam between the panels. (4) Replace the glass door with an acoustic door with a double pane glass panel large enough to see who’s on the other side of the door at a glance…no larger. Also, we may want to rethink that STC 32. ¾” glass mass has good STC rating, but rigidity has poor STC rating. Need to talk to a glass rep to determine which works better to stop sound, mass, or double/triple glazing. It probably depends on what frequency range we want to stop. TVs Likes – The five regular TV’s were a good size and could easily be viewed from the back of the secondary. In addition, five seemed to be an optimum number rather than four called out in the F&ORs. Some people liked the VCR in the EOC-Main Room for recording, while others felt that the VCR could be located elsewhere. Dislikes – The hanging monitors are nice but there are too many, and they are too high and too big for people to view while in the primary room. One comment questioned the need for five monitors. Additionally, there is no real provision for servicing the TVs. If a TV burned out it would be difficult to replace and would involve getting a man lift through the glass enclosure for replacement. Recommended Improvements – For better display, lower the TVs to the top of the display wall. For the purpose of repair or maintenance, some ideas were to either put in a mezzanine or cutouts like our (LANL) current EOC, (so TVs can be accessed from a ladder or catwalk in the projection room behind the Primary EOC), or have the TVs powered for lowering for repairs, etc. Rear Projection Likes – The rear projection in this area appeared to be extremely functional and relatively low cost. It worked well, and was sharp and clear, even with lights on in the projection room. Many were convinced this is the best method for the Primary EOC and that we can come up with something that looks even better. Front projection is probably fine in training rooms, since everyone is supposed to be looking at the same thing at the same time in that environment. It was pointed out that the current LANL EOC already has projectors that are very similar (if not identical) to those used in Albuquerque. This being the case, the projectors could be GFE saving project dollars for the screens. Recommended Improvements – There were floor mounted cable trays in the projection room – they appear to be an afterthought. The projection screen room



needed planning to anticipate use of cable trays/troughs between screens and minimize tripping hazard. Also, people were interested in cost for rear projection set up. White Boards/Data Display Screens Likes – People really liked the hanging white boards (5’x 6’) and the display screens (three 6’ x 8’ screens). The rolling white boards in the EOC-Main Room in front of the big screens were a good idea and the screen quality was good. Additionally, the electric movie/VuGraf screens in Training Room and EOC-Main Room looked professional. Recommended Improvements – Add electric sliding white boards on either side of display screens (don’t know how effective the sliding marker boards are compared to the electronic ones that can be put on a monitor). This would mean that we don’t have to cover up one of the rear projection screens to use it. Nor do we have to place it so that it is even directly visible to the secondary if they can pull up on their monitors while it is being drawn. General Comments (Room Layout, Duct Work, Floor Ports, etc.) Likes – The room proportions were good and we liked the use of proximity badges for access. Liked the storage room off the EOC-Main Room. The satellite-type tables at the periphery were good with phones and data capability. Also, the table with under shelves and recessed spot lighting in EOC-WR is a good idea. Ports in the floor are nice for free standing installations like the primary room table. Dislikes – Some felt that the EOC-Main Room was really not big enough. EOC-WR should be more long than wide with rectangular w.r.t. screens. Also, the dry erase panels in EOC-WR are too high, full top half of each panel was unreachable and unusable. Don’t think their set up for telephones was adequate for our needs as we operate today. Floor ports are fixed in conduit. There is an air duct between the copier room and the EOC. Recommended Improvements – Included in the current F&ORs is a requirement for a “U” and “V” shaped table…keep with this concept rather than the oval table. A “U” or “V” shaped table would cause the group in the Secondary EOC to be more focused, and perhaps allow the facilitator more control. Additionally, the main table needs cable holes and we will need to either have a lot of ports, or have a raised floor with moveable ports so room layout can be reconfigured. (One downside to raised floors is that they are noisy compared to a solid sub floor.) Also noted that A-EOC had only one-half the ports that the present Laboratory standards call for. We need to pay special attention to infrastructure we ask for in the Primary EOC. We need phones at each table position and at least a couple of workstations. We will also need the cell phone amplifier/relay antenna and an internal cell phone repeater in the EOC, and a LAN so all computers can retrieve data from various screens. There is a computer in the primary room specifically for this purpose. We should consider using a flashing



message board in primary if going secure, etc. Also we need to be aware of placement of vents in the primary room so conversations are not overheard. Finally, there should be a place for hanging coats for the people manning the Primary and Secondary EOC, not just the dispatch areas. A small separate room off the primary would be very helpful for primary room personnel. Additionally, we will need floor space for VCR bank and room for electronic computer white boards. Need to keep noisy media (copier) away from the EOC. 1.2 EOC-Secondary Room/SECONDARY EOC Room Layout/Workspaces Likes – We probably don’t need floor to ceiling glass, but a half glass wall would work great and probably be quieter. While the workspaces in the EOC-Secondary Room were not as elaborate as those in the NM State EOC, they appeared to be equally functional and at a lower cost. The two conference tables at the front of the EOC-Secondary Room were almost identical to what we had been looking at for LANL/LA County arrangement. The tables were of good size and the space available around each table and the workstations appeared to be right and allowed people to walk around them easily. People also liked the rise of the seating in the back of the EOC-Secondary Room, and the concept of EOC-Secondary Room people facing each other, but are not sure how practical it would be in an emergency or how loud it would get. People liked how the EOC-Secondary Room was identified by discipline. This made it convenient for people looking out from EOC-WR. People also liked the library room, communications room, and plotter room off the EOC. Finally, the ramps up to the different levels appear to meet ADA requirements. Dislikes – The pony walls at the front of each level were a good idea, but could have been better utilized. Also, there were no restrooms or copy rooms on that floor. Recommended Improvements – If we use the side windows overlooking the EOC, make it a useful view for offices or breakout/meeting rooms. Noted that if we build pony walls, we limit the layout. On the other hand, if the floor is stepped with ramps at the edges, we do that anyway. One idea is to have the Primary EOC elevated a foot or so, and then have modular Secondary EOC workstations that are freestanding and relocatable with low partitions and worktops. This would allow them to be modified over the year by hooking into power and communication via an access floor. It may even be worth having them roll around. Also, the desk areas need drawers, shelves, or trays of some type for paper, pens, checklists, etc. We will need a restroom and copy room on the same floor. We could also put the plotters in the copy room. Finally, there should be a place for hanging coats for the people manning the Primary and Secondary EOC, not just the dispatch areas.



Lighting/Electrical Likes – Indirect lighting was a plus, including recessed lights directed at desktop areas. Dislikes – It was noted by several persons that there was quite a glare on the glass wall separating the primary from the secondary. Recommended Improvements – We need to talk to an EE to determine if ceiling mounted pots at individual stations would be the best solution to the glare problem. It may be that we would have such a high wattage at 20’ AFF to attain acceptable light levels at desk height that some sort of desk task light might be better. We would still have to arrange to hide the light from the windows. Task lighting at the workstations and lighted isle ways would virtually eliminate the glare as long as the task lighting is either integral to the pony wall or extended no higher than the pony wall. We might also consider floor-mounted track lighting (similar to movie cinemas) that is directly tied to a battery-supported emergency lighting system. Until the GenSet comes up, interior space will be very dark. We need to consider either a raised floor or placement of the power strips/network data ports on the pony walls. If the power strips/network data ports on the pony walls were installed just above the work surface rather than just below, not only would they be much easier to work with (plug into and out of), but would not be as susceptible to spilled beverages. Also, we need accessible power/signal/communications cable trays throughout the EOC with some dedicated to workstation areas. Communication/Data Display Likes – Headsets with microphones at each station to tie into phone lines or to other stations is a plus to keep down noise. The electrical and phone/data ports were very well done, with 30-35 phone lines. Being able to put both the computer images from the primary as well as the white board images from the secondary area on the screen was also a definite plus. People also liked the portable dry erase, computer-based marker board that allowed you to “download” to a computer and then broadcast onto the projection screens. Dislikes – The portable, dry erase computer-based marker boards may present tripping hazards during emergency commotion. Recommended Improvements – Some individuals who have to move around a lot may want mobile phone units if security can be effected or in situations where it is not an issue. Also, separate connections and maybe separate access for county, 911, and EOC phone and network connections. There will be LANL and non-LANL network support people and possibly multiple phone companies involved. We should consider providing the 24 or so flat screen monitors at workstations as part of the EOC project. This will make the workspace even



more functional without the added cost of the “view through” workspaces of the CRT cradles that were part of the Santa Fe EOC. Additionally, it would be very helpful for each of the workstations to be able to hear what was on the monitors via headphones. The user should be able to switch to a particular monitor for TV/data/web/etc. General Comments Likes – A great deal of attention towards acoustical treatment on the wall and ceiling systems was used to attenuate noise during an emergency. Liked the carpeted wood over concrete wall (sound deadening) that could have maps, pictures, corkboards, and white boards easily attached. People also liked that the EOC could be secured (badge readers at portals). Recommended Improvements – Sound dampening is a necessity and may need more attention in our EOC. 2.1 Large Conference Room/LARGE MULTI-PURPOSE CONFERENCE

ROOM Some people felt that this was wasted space at the A-EOC and that we do not need a large meeting room. However, the layout of the floor outlets in the conference rooms was well thought out. These would be useful in setting up areas for different groups. It was also noted that the large conference room had screens installed in the lower half of the windows. This may be an HVAC recirculation concern. 2.2 Small Conference Room/SMALL MULTI-PURPOSE CONFERENCE

ROOM Some people felt that the small meeting room off the EOC-Main Room is nice, but not absolutely necessary. However, the layout of the floor outlets in the conference rooms was well thought out. These would be useful in setting up areas for different groups. 2.3 Emergency Technical Support/EMERGENCY TECHNICAL SUPPORT This is where the mapping and CADD support goes. One recommendation is that it may warrant a separate area like the one at A-EOC. It is more work oriented rather than collaborative support oriented. The A-EOC “special map room” had 2 large flat files, 4 computers, 1 copier, 1 plotter, 2 faxes, an entire wall of built-in cabinets, and wall space for very large maps. 2.4 VAULT ROOM



There were no comments on this area. 2.5 COMM ROOM There were no comments on this area. 3.1 Reception/ADMINISTRATION/RECEPTION The only comment on this area was that people liked the area monitor capability in the reception area. 3.2 Offices/STAFF OFFICES Growth is the most important factor in all aspects. Noted that A-EOC was already putting people in places that were not meant to be office space. The arrangement of offices in A-EOC placed a number of them inside without windows. This was not the vision we had – we planned on the offices being on the outside. The staff office systems right outside the 12 department offices can be planned into an “extra wide” corridor with added forethought. It might make sense to consider this for the Multi-Agency Office Space (see section 3.4), which could be useful to permanent building occupants when not needed for emergencies. To segregate it off by itself makes in a no-man’s land until needed. The offices had two computers for doubling up during an emergency, and all administrative lockers were wired for two computers. 3.3 Training Room/TRAINING ROOM The training room seated 24 very comfortably, with no plans to use it for storage space, a dormitory or other uses. There were not enough bunks in the A-EOC, but people liked the Murphy beds. The training room may be a good place for the Murphy beds. Additional storage areas for blankets/pillows could be built into the beds or along side of them. Some people recommended putting some in the training room with privacy curtains (like in hospitals) or use the classroom divider to separate men and women. The only problem with the Murphy beds is the cost. Cots from REI (or equivalent) may be better. People liked the doors with sidelights, built-in mail slots and “cubbies,” and a short wall of cabinets. People also liked the several operable windows in the training room. This would be a nice touch in the Los Alamos climate if security were okay with it. 3.4 Multi-AGENCY OFFICE SPACE The staff office systems right outside the 12 department offices can be planned into an “extra wide” corridor with added forethought. It might make sense to



consider this for the Multi-Agency Office Space, which could be useful to permanent building occupants when not needed for emergencies. To segregate it off by itself makes in a no-man’s land until needed. 3.5 Storage Rooms/ADMINISTRATIVE STORAGE The EOC building had a great deal of storage rooms, and they were already running out of storage space. They seemed to have too many, inefficient storage rooms. People did like the one large storage room with double doors to the outside. We will need to add large storage rooms with lots of commercial shelves or wooden shelves (depending on what will be stored) to the F&ORs. We will need quite a few storage areas, i.e. near copy rooms, the training room, the kitchen, rest rooms, etc. There could be some storage in the Garage, as well. 3.6 Entrance/MAIN ENTRY VESTIBULE Noted that the F&ORs for this area should highlight the need for hard flooring. 4.1 Fire & Police Dispatch Area/FIRE AND POLICE DISPATCH Likes – Generally speaking, people liked the fire dispatch setup, including the joined but separate rooms for AFD and APD. People also liked the area monitor capability in the Joint Dispatch and Reception areas. The dispatchers loved having windows with a view to the outside and the back arrangement of stations. There were four active primary and two “reserve” (or one for a supervisor) stations – exactly the size we have in the F&ORs. The dispatchers also liked the workstations, which were moveable and capable of being elevated such that they could be worked either seated or standing. Further, each call receiver had two PCs and each dispatcher had four PCs. Dislikes – While the carousel in the center of the dispatch area was thought to be a plus, the fact that it was round was a definite drawback, since virtually every item in the carousel is rectangular. A rectangular or square carousel would be more functional. Also, the dispatchers did not feel that it was an absolute requirement that the carousel be mounted on wheels. If it were not, a floor plug would facilitate a coffee pot on top of the carousel rather than the urn that they currently use. Recommended Improvements – We need the F&ORs for the Dispatch areas. Several parties pointed out that a view of the outside was an absolute requirement for the dispatchers. In addition, it was pointed out that the bulletproof glass was a requirement in the dispatch area since the Albuquerque facility had been shot at during the Y2K “unrest.” We should probably try to use both the windows and the back arrangement of stations, even if we do have to use bullet resistant glazing.



This discussion also prompted several further discussions on permanently gating the facility, possibly with proximity card access. We will need remote capability to open the front gate during after duty hours when someone needs access, as well as phone and video to the front gate. The dispatchers will also need TV (local, cable, satellite, etc.) and a communications link between Joint Dispatch and CAS. Security must know when Fire/Medical is dispatched to a Lab facility. Ergonomically correct chairs were reported to be an absolute requirement in the dispatch area – we will need these. We will also need access to rest rooms and lounge area, and large clothes lockers. Also, “cubbies” in the APD briefing room, if bigger, would be of value to the people coming into man the Primary and Secondary EOC. This would give them a place for their laptops, paper information, etc. that they may want to bring with them. 4.2 DISPATCH SUPERVISOR OFFICE There were no comments on this area. 4.3 SECURE ARCHIVES There were no comments on this area. 4.4 Bathrooms/TOILET ROOM See comments under section 5.2 TOILETS/LOCKER ROOMS. 4.5 Server Room/SERVER ROOM We need to change the floor designation to “raised computer floor.” Noted that the server room at A-EOC was 18’ x 22’ (not far from our estimate) and it had three workstations in it. 4.6 Radio Transmitter Room/RADIO TRANSMITTER ROOM Noted that our square footage of 400 sf. may be too large. 4.7 DISPATCH STORAGE See comments under section 3.5 ADMINISTRATIVE STORAGE. 5.1 Kitchen & Lounge/KITCHEN & LOUNGE Room Layout



Likes – There were numerous comments on how much people liked the layout, particularly the outside patio off the kitchen and the enclosed break room/gym. The placement of the break room on the second story seemed okay and having it close to the dispatch areas was our idea also. The kitchen bar would be ideal for laying out food trays. Dislikes – Members of the LANL EOC staff felt that the kitchen was too narrow, was too small for two or three people to work in at the same time, and did not make adequate allowance for through traffic. Some felt that the lounge area is larger than we would need and that having the gym/break room off the EOC looked like a waste of space. If there are speakers in those areas, alerting staff to any change of status on the emergency would be better achieved that way. Recommended Improvements – It wouldn’t hurt to leave floor space for some workout equipment or have a small exercise room (we have budgeted something roughly one half the size of Albuquerque’s). Also need more storage. A 6’ x 8’ room or 8’ x 10’ room with industrial shelving would be good. Appliances/Systems Dislikes – The kitchen areas need additional exhaust to remove food odors when cooking or reheating in microwave. The kitchen had cheap quality appliances, a small stove, and no freezer, icemaker, or trash compactor. Recommended Improvements – In the kitchen area, we had noted that commercial grade appliances and a trash compactor would be recommended. The Albuquerque staff agreed that a trash compactor would be good. The one feature that the fire department folks did not like at A-EOC was the “cheap” stove. We need to stick to commercial quality. We also need an icemaker. Finally, we made no allowances for vending machines – we should (here or elsewhere at the facility). 5.2 Bathrooms/TOILETS/LOCKER ROOMS The bathrooms need to be more centrally located – they were too far from the EOC-Main and Secondary rooms. We will need a restroom on the same floor as the Primary and Secondary EOC. The showers were too small for that size EOC. They either needed to have at least two showers or group showers. People liked that each dispatcher has a dedicated locker, but the lockers were too small – we need bigger ones. There was also some concern that the AFD lockers mounted on the floor were separate from the lounge, workout area, and shower areas. 5.3 COMPUTER ROOM: SITE WIDE F.P. HEAD-IN EQUIPMENT There were no comments on this area.



5.4 Plotter Room/PLOTTER ROOM OR ALCOVE People liked the plotter room off the EOC, because the time from “idea” to “map” is reduced. It makes it easy to ask, “Is this what you want?” and view it on screen before sending a big, time-consuming plot. It is also easy to get the maps and large paper data to the decision makers quickly. Another recommendation was to put the plotters in the copy room. 5.5 Copy Rooms/COPY ROOMS OR ALCOVES We will need a copy room on the same floor as the Primary and Secondary EOC. One recommendation was to put the plotters in the copy room. 5.6 LAUNDRY ROOM OR ALCOVE There were no comments on this area. 5.7 OFFICE SUPPLY ROOM There were no comments on this area. 5.8 GARAGE The only comment on this area was that there could be some additional storage in the Garage. 5.9 Parking Area/PARKING AREA People felt that that the security access to the building and building parking was very good. Also, we were told that additional fencing is forthcoming. We should find out why and may need to anticipate similar issues and install fencing appropriately. We noted that Albuquerque had no backup plan for a broken gate. We will need to secure the front gate after regular duty hours, and will need lighting, phone, video, and remote opening from Reception and Joint Dispatch areas. 5.10 Diesel Generator Room/DIESEL GENERATOR ROOM We liked the emergency diesel generator inside and the radiators outside. We still need the F&ORs for the interior emergency diesel generator room. We need to make sure that the emergency generator exhaust will be located further away from the building air intake system. We should probably get some criteria for the



fuel storage characteristics so we don’t get into a situation for fueling like Albuquerque. The underground fuel storage tank at A-EOC was 2500 gallons. We should definitely consider water drainage when siting fuel storage – don’t put it underground in front of the roof drain. The folks in Santa Fe recommended aboveground storage. On the other hand, if the fuel tank were underground, it would be protected from fire, small arms, and explosives without having to build an additional structure to cover it. 5.11 Telephone Room/MAIN TELECOM ROOM Likes – The phone equipment room was large and the data and communications lines were kept separate. This reduces the potential errors when routine work is done on the cable heads. Dislikes – Telecommunications room square footage was okay, but the configuration of the room was wrong. The room should have been wider. Also, the room had some kind of furring on the west wall that took about a foot of space away (afterthought?). Recommended Improvements – The radio transmitter room, computer room, dispatch equipment room, and main telecom room need to be adjacent. This will require that we get the right people to go over the space requirements for each room along with cable tray and feeder conduit configurations. We also need the F&ORs for the main telecom room and the antenna room, not just for hubs on every floor. We should consider keeping the data and communications lines separate to reduce potential errors when routine work is done on the cable heads. Current LANL policy, which is to bundle together all the cables that go into the telecom room, is a concern. Additional 6”-8” communications tubes would be desirable since there is always a need to run additional antenna wires, etc. We will also need a punchboard to separate phones from radios from data links. This will facilitate mnx. Since security will now be separated from LAFIRE, there needs to be a link between LAFIRE and the CAS so that they know what each other is up to on Lab property. That would allow for better coordination response between the two groups than is currently afforded by CAS because both are co-located. 5.12 REMAINING ISSUES HVAC Room & HVAC Periphery/UNDEFINED Computer control of HVAC was a definite plus, but the computer based controls functioned poorly and the HVAC system was difficult to balance. Also, disliked that the PD dispatch operates the HVAC. It appeared that some of the users did not like the under floor HVAC. Also, the temperature control in the dispatch areas was poor because of use of floor panel fans. It may be worth maintaining the ability to go fully manual for the HVAC system. We need to make sure that



the building air intakes won’t pick up exhaust from the generator or parking lot. It was also noted that the building had a central vacuum cleaning system. Corridors, Hallways/UNDEFINED The hallways were nice and wide (8’ 6”) with acoustical treatment. These will be especially during emergencies. People also liked the use of indirect lighting. However, some people did not like the full height windows at the end of the halls. They look good, but we have to protect from small arms fire. People also didn’t like the skylights – they leak. General Comments Electrical/System Likes – The use of indirect lighting in many areas was very positive. The computer/phone ports on the floor are a good idea. People also liked the radio transmitters that were in several places. The “skeleton” style cable trays are very easy to use and make tracing/trouble shooting much easier. Dislikes – They needed to have more of their phone lines recorded and the system needed to be expanded. The lighting protection for the antennas and wave-guides needed to be upgraded. The building had no emergency lights on the walls – it would be dark until the GenSet kicks in. Recommended Improvements – We need to push the idea of adding more jacks for both data and telephone into each side of the rooms. The Laboratory standard is two per room – in some instances we will need much more than that. We should investigate any and all telephone systems that might make life as simple as possible. The layout of the floor outlets would be useful in setting up areas for different groups. We should have wall outlets, as well. We should plan for 50% more conduit/cable tray capacity (maybe pre-bore holes and patch for later). We need to accurately identify Normal and Emergency loads for. Utility, UPS, and GenSet. Note that the UPS needs to supply the computers and the EOC, not just the dispatch center. The UPS will also need seismic bracing. Our lightening protection for the antennas and wave-guides need the latest technology. Miscellaneous Comments Should the GenSet fuel tank be separate or self-contained? The A-EOC had no provisions for water storage. We will need water storage somewhere for “x” days. The security access to the building and building parking was very good. However, some wondered what is the purpose of the room-by-room access control. We were told that the doors would remain open during an emergency. The existing VonDuprin locks are not secure locks. The UPS room did not have water, sewer, etc. pipes. Floor drains are required in places that have chilled water running through them. One person suggested that all ground floor rooms need some type of drainage system.



There should be an elevator if the EOC is going to be two stories. Having plywood on the concrete walls was a great idea to be able to place things on the walls with tacks, etc. Several people recommended doorstops in numerous locations.

B. New Mexico State EOC: Tour Conducted October 10, 2000

The following is a consolidated list that incorporates all comments resulting from the New Mexico State Emergency Operations Center tour conducted on October 10, 2000.

1. Facility is approximately 20,000 square feet, located on NM National Guard land.

2. Staff offices and most of the supporting spaces are located at grade

level. The Primary EOC is located below grade.

3. Facility is not set up for long-term habitability. Sleeping quarters and cooking areas are shared with the New Mexico National Guard.

4. Full-time, off – emergency staff is 27. Emergency staff is

approximately 100.

5. Primary EOC information: Auditorium style with three levels and 15 workstations, ADA ramps

on each side, a large presentation area in front of the video screen, Contains a large raised flat screen video wall driven by projection

screens located at the rear of the room. Three rooms overlook the primary; planning, logistics, and the

Governor’s room. An intercom connects these rooms.

6. Other design features Abundant storage space. Pull-through garage. On-site cordless communication system. Generator is outdoors.

7. Recommendations:

Incorporate plenty of ducts for future growth. Additional systems have been added that have already used some of the incoming spares. Communications equipment room is already too small. Communications equipment room HVAC was designed too small.

A stand-alone unit has already been added to that room.



IV. DESIGN-BUILD RFQ/RFP PROCESS LESSONS LEARNED SESSION

The following information was collected from a Design-Build RFQ/RFP Process Lessons Learned session held on April 23, 2001 with representatives from the Strategic Computing Complex and the SM-43 Replacement Projects.

A. Lessons Learned

1. Put together a dedicated fulltime project team that is collocated. This

fosters a “team” attitude among the different groups involved in the project and allows easier, faster resolution of issues. The team will be co-located for the most part at TA-0-727 during

project development. During construction, plan to put a requirement in the procurement documents that requires the contractor to provide a job site trailer with sufficient space for an on-site CM, PM and shared space for Safety/Construction Inspector.

2. Conduct a “partnering” session (with a facilitator) with the design-build

contractor. This helps iron out a lot of potential pitfalls. Discuss such elements as safety, cost, importance of minimizing change orders, schedule, roles and responsibilities of all team members, and success of LANL and the contractor. This session can be nom-confrontational and help impart respect and communication. To be included in the contract documents.

3. Along the same line, it is important to have a DOE advocate. This is

best achieved by involving DOE in early decision making. The end result is that the ideas partially belong to DOE, thereby making them a better sell to other DOE individuals. We have invited the Federal Project Manager to participate in the

weekly meetings without success. Will continue to encourage DOE participation. In the mean time, the Federal Project Manager participates in the CGR morning meetings from time to time as well as monthly project review meetings. In addition, the team meets with the DP-6 program sponsor as often as possible. Have drafted a Memorandum Of Understanding for the approach to the CGR LIP’s with respect to the CD approval process.

4. Provide routine progress reports (e.g. via email) to the entire team,

DOE (LAAO and HQ), and anyone else who may be impacted. This keeps everyone informed of status and changes; reduces potential for rumors; allows people to provide information or recommendations that could keep the project going down the right path; and helps keep the “team” attitude.



Have initiated the process and will expand to include all of the CGR LIP’s. Sent out an e-mail on 5/25/01 @ 4:09 PM requesting weekly reports on all projects. Plan to initiate weekly progress reports on 5/4/01.

5. Hold a “marketing day” early in the project. Invite Design Build Institute

of America, as well as local contractors to discuss upcoming projects so they can be prepared to bid on them. This helps get good competition to take advantage of the design-build process. Given the potential for upcoming shortages in labor due to construction projects around the state (i.e. Intel, the Big I, etc.), this could be good for the CGR Project as a whole. Have been working with Janet Lacy on AGC, SMPS and

CSI…Janet will help set up a meeting. Have sent an e-mail to CGR PM’s and discussed in morning meeting (both 4/26/01) – requested a list of all construction activities associated with CGR in preparation for the referenced meeting.

6. Develop a solid, unchanging mission statement.

This action complete prior to the Lessons Learned Meeting.

7. The roles and responsibilities matrix did not seem to help a whole lot, but definitely came in handy during audits. This action complete prior to the Lessons Learned Meeting.

8. Cost estimates need to be defensible. This can save you a lot of time

in the long run with audits. Have initiated an ICR for the CDR estimate. In addition have

initiated a D-11 Project Risk Assessment that will be used to establish/verify the Contingency/MR. The D/B Contract will be a firm fixed price bid. The AE will include backup data for all cost estimate items.

9. Use “modest customization” in the design. For example, pick generic,

flexible office suites in the design, and then let the user make changes later down the line. This seems to work well and can really minimize change orders. The F&OR provides for standard offices to the extent possible. In

addition, the conference rooms have standard F&OR requirements. Raised floors are specified in the core EOC and Dispatch Center areas. This will easily facilitate rewiring of any future changes.

10. It is worth the effort to cut down LANL reviews as much as possible.

Particularly with the CGRP design-build scenarios, unnecessary reviews can really impact the final $ available for the actual products. Will comply to the extent possible within the LIR requirements.



11. Conduct a “slow burn” final review of the D-B Specs, F&ORs, etc. This

may take more time up front, but can produce far better documents in the end, and greatly reduce the time spent on requests for information and design changes. Have included the “slow burn” in the draft MOU with DP-6 for CD’s.

12. Be very careful in determining contractor selection criteria, and specify

these criteria up front in the RFQ to limit the responses and the amount of material provided by responders. Will be using the same consultant team as was used for SCC. In

addition, will be using the DARHT facility and SM-43 Replacement Source Selection Criteria as a model to start from.

13. Nail down everything in the RFP to avoid BCPs later.

This point has been discussed in numerous meetings, documented in the meeting minutes. The EOC stakeholders have all been advised; “If it isn’t in the procurement documents (F&OR, DC, D/B Specifications) you probably won’t get it.”

14. May not be able to use “buy the bids” method if there will be no trouble

getting bidders. However, could use liquidated damages or incentives. For example, SCC used $15,000 per day based on project team costs. The contractor would pay LANL $15,000 in liquidated damages for every calendar day they are past the substantial completion date. Conversely, LANL would pay the contractor an early completion bonus of $15,000 for each day not exceeding 30 days (i.e. capped at $450,000) that the contractor achieves substantial completion prior to the substantial completion date. This bonus was extended to 65 days if the total price of the contract was less than a given amount. Have included the liquidated damages and incentive in the draft

MOU with DP-6 for CD’s.

15. Hire a construction management firm who has worked with LANL before to act as a liaison between the construction contractor and LANL. This can really help construction contractors who have not done work with LANL to effectively get the job done. Currently included as an option in the H&N/R contract…basically

this has been the plan since the procurement of the conceptual A/E team.

16. Security seemed to be the biggest problem. It would be extremely

beneficial to get security on board very early in the project. This could alleviate problems with having enough inspectors available. One recommendation was to contract out this security work.



We have a dedicated Security Specialist on the team. In addition, the EOC team has met with the NMSSUP team. One big advantage available to the EOC is that the end user is S-Division. Stan Busboom has approved the team appointment and is kept abreast of the progress of the project through George VanTiem (S-8 Group Leader/EOC Technical Project Leader). The Performance Specifications include installation of the raceway and cabling for ARGUS. If ARGUS is not available, the building will be hooked to the BRASS system. Finally, Kirk Ellard (the NMSSUP Project Team Leader) has volunteered to be the single POC/liaison between the Replacement EOC project and NMSSUP (Responsible for the ARGUS installation).

B. Notes

1. RFQ reviews – legal, project team, contract administrator, project engineers, program office, and A/E for help, but not decision. All of the above are in the plan. As of this writing, contacts have

been made with all parties.

2. For CGRP – look into ARGUS panels, LANL requirement to include $ for panels may not apply to the fire recovery funds. This could save some $ on the EOC and Office Buildings. We have a dedicated Security Specialist on the team. In addition,

the EOC team has met with the NMSSUP team. One big advantage available to the EOC is that the end user is S-Division. Stan Busboom has approved the team appointment and is kept abreast of the progress of the project through George VanTiem (S-8 Group Leader/EOC Technical Project Leader).

3. Value Engineering – everyone agreed that this seemed like a non-

value adding step in a design-build project, given that the point of design-build is to get the best value. Have included this approach to Value Engineering in the draft MOU

with DP-6 for CD’s.

4. Admin. Building – preparing CDR after receiving proposals. Going to CD-1 with a “preliminary CDR” and proposals. It’s not clear how this meets the LIR 220-01-01.3 requirements, but they have DOE HQ buy in. The CDR is usually used to establish the baseline, but is not used in that capacity in this case. If the baseline is already established, what is the point in doing a CDR? At the time of this meeting, the 95% CDR was already issued.

V. TELEPHONE CONFERENCE WITH FEMA



The following information was taken from a telephone conference with Michael Mosteller, the POC for the planned FEMA EOC in Washington D.C., held on May 14, 2001 at 8:00 am. Keith R. Orr and George Van Tiem participated from the EOC Project Team.

1. Mike’s team has just completed the space planning effort – will occupy

a floor to 1-1/2 floors for the main operating room. A team of planning specialists was employed to complete this portion of the project. The LANL EOC team includes specialists in the field of Emergency

Management and Response and space planning specialists that have completed planning efforts for similar facilities both in the U.S. and abroad. Furthermore, the team has visited three existing EOC’s with a fourth visit planned.

2. Ideally would like to have the main operating room surrounded by

executive offices/conference rooms that have a view into the main operating room. This is in the current Conceptual Design and these adjacency

requirements have been included in the Functional and Operational Requirements.

3. Planned Operations Center is 32,000 square feet and includes a glass

partition to support area. While the need for the operations center (primary and secondary)

at LANL is not as great as the FEMA facility in D.C., the primary and secondary areas were optimized first with the remainder of the facility space planning to fit around this vital area.

4. Keep the media out of the operations center area. For the FEMA

facility, the media center is physically removed from this area to the greatest extent possible. In the case of the LANL EOC, the Public Information Center will be

located is a separate building, e.g. it will remain where it is currently.

5. The FEMA facility will utilize “off-the-shelf” communications for the

most part with some limited radio communications. The LANL facility will use off-the-shelf communications to the

maximum extent possible, however, as a result of other lessons learned from the Cerro Grande Fire, additional communications capabilities will be required.

6. Do not recommend drop down projectors due to the noise factor.

Mitsubishi (sp?) makes a display wall that is on the order of $1M for a 7’ x 20’ wall.



Current plans at LANL are to install a “Christie System” with a cost on the order of $300K. (Mike would like to receive the information on the Christie System…George VanTiem agreed to provide.)

7. Development of the FEMA facility has been underway for

approximately one to one and one-half years. The current approach has been to separate the space planning from the building design. As the LANL EOC is a “Greenfield” construction project, the space

planning drives the design of the building.

8. Installing a separate generator for the National Inter-Agency Operations Center to run for 48 hours with re-fuel capability. Recommend no less than 48 hour capability. Can move to a facility of lesser capability in the event of a loss of power for periods greater than 48 hours. As a result of the lessons learned from the Cerro Grande Fire, the

LANL EOC will be designed to be fully survivable for a period of 14 days (Including water, sewer, power, sleeping accommodations, etc.)

9. For the back-up HVAC, use a separate type of system. This is not in the current project requirements. Will meet with the

design team to discuss.

10. “Trendway” is a designer of workstations that has successfully done work with the Federal Government and DOD. Not all firms that do workstation design enjoy this reputation. Need to be selective in the approval of workstation designer. Will discuss adding a hold point in the procurement package for

approval of the joint dispatch center workstation design.

11. Recommend separate breakout rooms with “networkable” white boards. The separate breakout rooms are in the Conceptual Design and the

Functional and Operational Requirements document, however, there is currently no plan for networkable white boards. George VanTiem agreed to discuss the concept with the EM&R staff and report back to the project team with a recommendation.

12. The Design/Build approach is a good way to go provided you can get

qualified contractors to bid. The Design/Build approach employed is a two-phased approach;

Qualifications followed by Proposals. The project is in the Pre-



Qualifications phase now. As of 5/14/01, eleven firms have expressed interest via response to the CBD advertisement. Preliminary indications are that at least some the firms that are interested will be able to meet the minimum qualifications, which include experience in the design/build approach and experience with similar types of facilities.

13. Be sure you build in more than you think you need…as soon as you

cut the ribbon, you’ll need to make changes…happens every time w/o exception. While the LANL EOC is necessarily designed to meet the minimum

requirements, however, allowances have been made in the design requirements that will allow for future expansion/changes. Things like raised computer floors in areas most likely to be reconfigured and numerous “extra” conduits throughout the facility are examples of this capability.

14. The FEMA facility will employ infrared technology for headsets thereby

allowing decision makers the ability to walk around the facility. Small RF capability may be more suitable for the LANL application as there are security considerations. George VanTiem agreed to discuss the concept with the EM&R

staff and report back to the project team with a recommendation.

15. Recommend talking to Don Mack in Albuquerque for additional lessons learned. George VanTiem knows Don Mack and agreed to set up a similar

lessons learned conference with him. Also discussed were the LANL lessons learned document that was previously drafted (Mike would like a copy) and the site visit to the Denton, TX FEMA facility that Keith and George recently completed. The facility in Denton is considered to be the showplace of FEMA Regional EOC’s. It is anticipated that both projects will communicate again in the future, especially with items that relate to additional lessons learned. In particular, LANL will provide any additional lessons learned that come from the site visit to the newly constructed Olympics EOC in Salt Lake City, UT. VI. HNR LESSONS LEARNED The items below are a brief checklist of recurring design issues and recommendations. Experience has shown that these items should be given high priority.

1. Use computer access flooring throughout facility with a minimum depth

of twelve inches. Experience has proven this will permit for optimum cable management. The design will incorporate requirements for raised flooring in all

spaces where this is appropriate.



2. Where required for HVAC ductwork, provide ample space between the

suspended acoustical ceiling and any structural obstruction. Minimum depth should thirty-six inches clear. The design will include 36 inches of clear space above the

suspended ceiling where ductwork will be installed.

3. Provide redundant UPS units/services For this facility, this suggestion will not be incorporated. A backup

emergency generator powers the entire facility, and the critical EOC equipment will have stand-alone UPS units.

4. Provide redundant Emergency Power Generator(s).

For this facility, this level of redundancy is not necessary. However, the design team is investigating the addition of an external power connection where a portable generator could be connected.

5. Provide redundant HVAC for the Operations Floor and the critical

equipment (communications/computer equipment). The design will include redundant HVAC for the entire facility.

6. Provide a sufficient number of spare conduits entering the building

from vaults on the site. 33% spare capacity will be included in the design.

7. Provide a sufficient number of spare conduits from

communications/computer rooms to the roof for future antennae/communications devices. 33% spare capacity will be included in the design.

VII. MISCELLANEOUS LESSONS LEARNED THROUGH THE

PROGRESS OF THE PROJECT

A. Subject Matter Experts Feedback

The following information was provided by the Subject Matter Experts (SMEs) that evaluated the conceptual design documents and the design-build proposals. The feedback was provided following the technical evaluation of the design-build proposals on 08/27/01.



1. The availability of the remote area to do the reviews in was seen as an extreme advantage with respect to timesavings and the ability to focus on the documentation without interruption. The technical review documents were held in a locked cabinet in the

H&N/R office. The technical review team was provided a conference area in which to conduct the review. For future design reviews, the EOC project team will consider reserving a conference area dedicated to the reviews.

2. The SMEs generally liked the forms provided to document their evaluations of

the design-build proposals. One comment was that the amount of space on the forms should be increased for those individuals who prefer to fill out the forms in hard copy rather than electronically. If these forms are used again during the course of the project, the EOC

project team will consider revising the forms to include more space for those that want to fill out the forms in hard copy.

3. Several of the SMEs like the form layout that allowed for side-by-side

comparisons of each evaluation criteria. Others felt that a single page for each proposal would be easier and cleaner. If these forms are used again during the course of the project, the EOC

project team will consider providing both formats to allow the SMEs to use the form of their choice.

Documents

EMERGENCY OPERATIONS CENTER REPLACEMENT AND … Learned Rev 2 08-28-01.pdfProject Execution Plan Emergency Operations Center Replacement and Relocation Revision 2 iii August 28, 2001