January 2008 National Response Framework: Overview Page i

This document was developed expressly for emergency management practitioners as an 

overview of the process, roles, and responsibilities for requesting and providing all forms of 

Federal assistance. This overview also presents a summary of each of the 15 Emergency 

Support Function Annexes and 8 Support Annexes including their purpose, capabilities, 

membership, and concept of operations. The complete annexes are contained in the online 

NRF Resource Center. 

For further information on how the Nation conducts incident response, refer to the National 

Response Framework. 

January 2008 National Response Framework: Overview Page i
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Page ii National Response Framework: Overview January 2008
CONTENTS

INTRODUCTION ...................................................................................................... 1

KEY PLAYERS ......................................................................................................... 2

Local Governments 

Tribal Governments 

State Governments 

Federal Government 

Nongovernmental Organizations 

Private Sector 

FEDERAL ASSISTANCE ............................................................................................. 4

Federal Support to States 

Federal-to-Federal Support 

REFERENCE TABS

Emergency Support Function (ESF) Annex Summaries.......................................9 

Introduction .................................................................................................11 

ESF #1 - Transportation...............................................................................13 

ESF #2 - Communications ............................................................................15 

ESF #3 - Public Works and Engineering ..........................................................17 

ESF #4 - Firefighting ...................................................................................19 

ESF #5 - Emergency Management .................................................................21 

ESF #6 - Mass Care, Emergency Assistance, Housing, and Human Services .........23 

ESF #7 - Logistics Management and Resource Support .....................................25 

ESF #8 - Public Health and Medical Services ...................................................27 

ESF #9 - Search and Rescue.........................................................................29 

ESF #10 - Oil and Hazardous Materials Response...............................................31 

ESF #11 - Agriculture and Natural Resources ....................................................33 

ESF #12 - Energy .........................................................................................35 

ESF #13 - Public Safety and Security ...............................................................37 

ESF #14 - Long-Term Community Recovery .....................................................39 

ESF #15 - External Affairs ..............................................................................41 

Support Annex Summaries ...............................................................................43 

Introduction .................................................................................................45 

Critical Infrastructure and Key Resources .........................................................47 

Financial Management ...................................................................................49 

International Coordination ..............................................................................51 

Private-Sector Coordination ............................................................................53 

Public Affairs ................................................................................................55 

Tribal Relations .............................................................................................57 

Volunteer and Donations Management .............................................................59 

Worker Safety and Health ..............................................................................61 

January 2008 National Response Framework: Overview Page iii
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INTRODUCTION

The National Response Framework (NRF) presents the guiding principles that enable all 

response partners to prepare for and provide a unified national response to disasters 

and emergencies – from the smallest incident to the largest catastrophe. The 

Framework defines the key principles, roles, and structures that organize the way we 

respond as a Nation. It describes how communities, tribes, States, the Federal 

Government, and private-sector and nongovernmental partners apply these principles 

for a coordinated, effective national response. The National Response Framework is 

always in effect, and elements can be implemented at any level at any time. 

This Overview supports and provides additional guidance concerning the Framework. In 

particular, this document focuses on the essential processes for requesting and receiving 

Federal assistance and summarizes the key response capabilities and essential support 

elements provided through the Emergency Support Function (ESF) Annexes and Support 

Annexes. 

The Overview includes the following topics: 

1. Key Players: Organizations and entities that may either need assistance or provide 

assistance 

2. Federal Assistance: Descriptions of the processes for requesting and obtaining 

Federal assistance in support of States, tribes, local jurisdictions, and other Federal 

partners 

3. Emergency Support Function Annexes: Summaries of the 15 ESF Annexes, 

which group Federal resources and capabilities into functional areas to serve as the 

primary mechanisms for providing assistance at the operational level 

4. Support Annexes: Summaries of the 8 Support Annexes, which describe essential 

supporting aspects that are common to all incidents 

The Framework also includes Incident Annexes that address specific categories of 

contingencies or hazard situations requiring specialized application of Framework

mechanisms. The Incident Annexes are not directly addressed or summarized in this 

support document. Readers should review the Incident Annexes on the NRF Resource 

Center, http://www.fema.gov/NRF. 

Details relating to requesting and receiving assistance, as well as the authorities under 

which assistance is provided, are available on the NRF Resource Center. Response 

Partner Guides, information on Stafford Act and non-Stafford Act assistance, all 

annexes, and a listing of legal authorities are available on this Web site. 

January 2008 National Response Framework: Overview Page 1
KEY PLAYERS

LOCAL GOVERNMENTS

Local governments (counties, cities, or towns) respond to emergencies daily using their 

own resources. They also rely on mutual aid and assistance agreements with 

neighboring jurisdictions when they need additional resources. The National Incident 

Management System (NIMS) provides information on mutual aid and assistance 

agreements. 

When local jurisdictions cannot meet incident response resource needs with their own 

resources or with help available from other local jurisdictions, they may ask the State for 

assistance. 

TRIBAL GOVERNMENTS

Tribal governments respond to the same range of emergencies and disasters that other 

jurisdictions face. They may require assistance from neighboring jurisdictions under 

mutual aid and assistance agreements and may provide assistance as well. 

The United States has a trust relationship with Indian tribes and recognizes their right to 

self-government. As such, tribal governments are responsible for coordinating resources 

to address actual or potential incidents. When local resources are not adequate, tribal 

leaders seek assistance from States or the Federal Government. 

For certain types of Federal assistance, tribal governments work with the State, but as 

sovereign entities they can also elect to deal directly with the Federal Government for 

other types of assistance. In order to obtain Federal assistance via the Robert T. 

Stafford Disaster Relief and Emergency Assistance Act (Stafford Act), the State Governor 

must request a Presidential declaration on behalf of a tribe. 

STATE GOVERNMENTS

The State helps local governments if they need assistance. States have significant 

resources of their own, including emergency management and homeland security 

agencies, State police, health agencies, transportation agencies, incident management 

teams, specialized teams, and the National Guard. 

If additional resources are required, the State may request assistance from other States 

through interstate mutual aid and assistance agreements such as the Emergency 

Management Assistance Compact (EMAC). Administered by the National Emergency 

Management Association, EMAC is a congressionally ratified organization that provides 

form and structure to the interstate mutual aid and assistance process.1 

If an incident is beyond the local and State capabilities, the Governor can seek Federal 

assistance. The State will collaborate with the impacted communities and the Federal 

Government to provide the help needed. 

 

1

 For more detail about EMAC, see http://www.emacweb.org/. 

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KEY PLAYERS

January 2008 National Response Framework: Overview Page 3

FEDERAL GOVERNMENT

The Federal Government maintains a wide array of capabilities and resources that can 

assist State governments in responding to incidents. Federal departments and agencies 

provide this assistance using processes outlined later in this document. In addition, 

Federal departments and agencies may also request and receive help from other Federal 

departments and agencies. 

NONGOVERNMENTAL ORGANIZATIONS

Nongovernmental and voluntary organizations are essential partners in responding to 

incidents. Working through emergency operations centers and other structures, 

nongovernmental and voluntary organizations assist local, tribal, State, and Federal 

governments in providing sheltering, emergency food supplies, counseling services, and 

other vital support services to support response and promote the recovery of disaster 

victims. These groups often provide specialized services that help individuals with 

special needs, including those with disabilities. 

To engage these key partners most effectively, local, tribal, State, and Federal 

governments coordinate with voluntary agencies, existing Voluntary Organizations Active 

in Disaster (VOADs), community and faith-based organizations, and other entities to 

develop plans to manage volunteer services and donated goods, establish appropriate 

roles and responsibilities, and train and exercise plans and procedures before an incident 

occurs. 

PRIVATE SECTOR

Forming the foundation for the health of the Nation’s economy, the private sector is a 

key partner in local, tribal, State, and Federal incident management activities. The 

private sector is responsible for most of the critical infrastructure and key resources in 

the Nation and thus may require assistance in the wake of a disaster or emergency. 

They also provide goods and services critical to the response and recovery process, 

either on a paid basis or through donations. 
FEDERAL ASSISTANCE

Federal disaster assistance is often thought of as synonymous with Presidential 

declarations and the Stafford Act. The fact is that Federal assistance can be provided to 

State, tribal, and local jurisdictions, and to other Federal departments and agencies, in a 

number of different ways through various mechanisms and authorities. Federal 

assistance does not always require coordination by the Department of Homeland 

Security (DHS) and may be provided without a Presidential major disaster or emergency 

declaration. 

Federal assistance for incidents that do not require DHS coordination may be led by 

other Federal departments and agencies consistent with their authorities. The Secretary 

of Homeland Security may monitor such incidents and may activate Framework

mechanisms to provide support to departments and agencies without assuming overall 

leadership for the Federal response to the incident. 

FEDERAL SUPPORT TO STATES

STAFFORD ACT

Federal support to States and local jurisdictions takes many forms. The most widely 

known authority under which assistance is provided for major incidents is the Stafford 

Act. 

When an incident occurs that exceeds or is anticipated to exceed local, tribal, or State 

resources, the Governor can request Federal assistance under the Stafford Act. The 

Stafford Act authorizes the President to provide financial and other assistance to State 

and local governments, certain private nonprofit organizations, and individuals to 

support response, recovery, and mitigation efforts following Presidential emergency or 

major disaster declarations. 

Most incidents are not of sufficient magnitude to warrant a Presidential declaration. 

However, if State and local resources are insufficient, a Governor may ask the President 

to make such a declaration. Before making a declaration request, the Governor must 

activate the State’s emergency plan and ensure that all appropriate State and local 

actions have been taken or initiated, including but not limited to: 

• Surveying the affected areas to determine the extent of private and public damage. 

• Conducting joint preliminary damage assessments with Federal Emergency 

Management Agency (FEMA) officials to estimate the types and extent of Federal 

disaster assistance required. 

Ordinarily, only the Governor can initiate a request for a Presidential emergency or 

major disaster declaration. In extraordinary circumstances, the President may 

unilaterally make such a declaration. The Governor’s request is made through the FEMA 

Regional Administrator and based on a finding that the disaster is of such severity and 

magnitude that effective response is beyond the capabilities of the State and affected 

local governments, and that Federal assistance is necessary. 

Page 4 National Response Framework: Overview January 2008
FEDERAL ASSISTANCE

The Governor’s request includes: 

• Information on the extent and nature of State resources that have been or will be 

used to address the consequences of the disaster. 

• A certification by the Governor that State and local governments will assume all 

applicable non-Federal costs required by the Stafford Act. 

• An estimate of the types and amounts of supplementary Federal assistance 

required. 

• Designation of the State Coordinating Officer. 

The FEMA Regional Administrator evaluates the damage and requirements for Federal 

assistance and makes a recommendation to the FEMA Administrator. The FEMA 

Administrator, acting through the Secretary of Homeland Security, then recommends a 

course of action to the President. The Governor, appropriate Members of Congress, and 

Federal departments and agencies are immediately notified of a Presidential declaration. 

Figure 1. Overview of Stafford Act Support to States 

January 2008 National Response Framework: Overview Page 5
FEDERAL ASSISTANCE

NON-STAFFORD FEDERAL SUPPORT TO STATE AND LOCAL JURISDICTIONS

While the Stafford Act is the most familiar mechanism by which the Federal Government 

may provide support to State, tribal, and local governments, it is not the only one. 

Often, Federal assistance does not require coordination by DHS and can be provided 

without a Presidential major disaster or emergency declaration. 

In these instances, Federal departments and agencies provide assistance to States, as 

well as directly to tribes and local jurisdictions, consistent with their own authorities. 

For example, under the Comprehensive Environmental Response, Compensation, and 

Liability Act, local and tribal governments can request assistance directly from the 

Environmental Protection Agency and/or the U.S. Coast Guard. 

This support is typically coordinated by the Federal agency with primary jurisdiction 

rather than DHS. The Secretary of Homeland Security may monitor such incidents and 

may, as requested, activate Framework mechanisms to support Federal departments 

and agencies without assuming overall leadership for the incident. 

NATIONAL DEFENSE AND DEFENSE SUPPORT OF CIVIL AUTHORITIES

The primary mission of the Department of Defense (DOD) and its components is national 

defense. Because of this critical role, resources are committed after approval by the 

Secretary of Defense or at the direction of the President. Many DOD components and 

agencies are authorized to respond to save lives, protect property and the environment, 

and mitigate human suffering under imminently serious conditions, as well as to provide 

support under their separate established authorities, as appropriate. The provision of 

defense support is evaluated by its legality, lethality, risk, cost, appropriateness, and 

impact on readiness. When Federal military and civilian personnel and resources are 

authorized to support civil authorities, command of those forces will remain with the 

Secretary of Defense. DOD elements in the incident area of operations and National 

Guard forces under the command of a Governor will coordinate closely with response 

organizations at all levels. 

In rare circumstances, the President can federalize National Guard forces for domestic 

duties under Title 10 (e.g., in cases of invasion by a foreign nation, rebellion against the 

authority of the United States, or where the President is unable to execute the laws of 

the United States with regular forces (10 U.S.C. 12406)). When mobilized under Title 

10 of the U.S. Code, the forces are no longer under the command of the Governor. 

Instead, DOD assumes full responsibility for all aspects of the deployment, including 

command and control over National Guard forces. 

Page 6 National Response Framework: Overview January 2008
FEDERAL ASSISTANCE

January 2008 National Response Framework: Overview Page 7

FEDERAL LAW ENFORCEMENT ASSISTANCE

Each State has jurisdiction for enforcement of State laws, using State and local 

resources, including the National Guard (to the extent that the National Guard remains 

under State authority and has not been called into Federal service or ordered to active 

duty). 

State governments may request Federal law enforcement assistance under the 

Emergency Federal Law Enforcement Assistance Act without a Presidential emergency or 

major disaster declaration. In addition, Federal agencies may request public safety and 

security or general law enforcement support from another Federal agency during a 

large-scale incident. The ESF #13 – Public Safety and Security Annex provides further 

guidance on the integration of public safety and security resources to support the full 

range of incident management functions. 

FEDERAL-TO-FEDERAL SUPPORT

INTERAGENCY AGREEMENTS

Federal departments and agencies routinely manage the response to incidents under 

their statutory or executive authorities. For example, the Department of 

Agriculture/Forest Service and various agencies of the Department of the Interior 

conduct wildland firefighting activities under existing memorandums of agreement 

(MOAs) with other Federal, State, and local entities. 

These types of responses do not require DHS coordination and are led by the Federal 

entity with primary jurisdiction. In these instances, the Secretary of Homeland Security 

may monitor such incidents and may, as requested, activate Framework mechanisms to 

provide support to departments and agencies without assuming overall leadership for 

the incident. 

FEDERAL-TO-FEDERAL SUPPORT COORDINATED BY DHS 

When a Federal entity with primary responsibility and authority for handling an incident 

requires Federal assistance above and beyond its interagency mechanisms (e.g., 

Executive orders, memorandums of understanding (MOUs), MOAs, etc.), that 

department or agency can request additional Federal assistance through DHS. When 

this happens, this support is: 

• Coordinated by DHS using the multiagency coordination structures established in the 

Framework and in accordance with the NIMS. 

• Generally funded by the Federal entity with primary responsibility and statutory 

authority for the incident in accordance with provisions of the Economy Act, unless 

other statutory authorities exist. 

• Facilitated by the interagency MOU for Mutual Aid, and executed at the time of the 

incident through interagency agreements (see the Financial Management Support 

Annex for more information). 
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EMERGENCY SUPPORT FUNCTION (ESF) 

ANNEX SUMMARIES

January 2008 National Response Framework: Overview Page 9
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EMERGENCY SUPPORT FUNCTION ANNEXES: INTRODUCTION

January 2008 National Response Framework: Overview Page 11

The Federal Government and many State governments organize much of their resources 

and capabilities – as well as those of certain private-sector and nongovernmental 

organizations – under 15 Emergency Support Functions (ESFs). ESFs align categories of 

resources and provide strategic objectives for their use. 

During a response, ESFs are a critical mechanism to coordinate functional capabilities and 

resources provided by Federal departments and agencies, along with certain private-sector 

and nongovernmental organizations. ESFs may be selectively activated for both Stafford 

Act and non-Stafford Act incidents where Federal departments or agencies request DHS 

assistance or under other circumstances as defined in Homeland Security Presidential 

Directive 5 (HSPD-5). Not all incidents result in the activation of ESFs. 

ESFs may be activated to support headquarters, regional, and/or field activities. The 

Incident Command System provides for the flexibility to assign ESF and other stakeholder 

resources according to their capabilities, tasking, and requirements to augment and support 

the other sections of the Joint Field Office (JFO)/Regional Response Coordination Center 

(RRCC) or National Response Coordination Center (NRCC) in order to respond to incidents in 

a more collaborative and cross-cutting manner. 

While ESFs are typically assigned to a specific section at the NRCC or in the JFO/RRCC for 

management purposes, resources may be assigned anywhere within the Unified 

Coordination structure. Regardless of the section in which an ESF may reside, that entity 

works in conjunction with other JFO sections to ensure that appropriate planning and 

execution of missions occur. For example, if a State requests assistance with a mass 

evacuation, the JFO would request personnel from ESF #1 (Transportation), ESF #6 (Mass 

Care, Emergency Assistance, Housing, and Human Services), and ESF #8 (Public Health and 

Medical Services). These would then be integrated into a single branch or group within the 

Operations Section to ensure effective coordination of evacuation services. 

ESF MEMBER ROLES AND RESPONSIBILITIES

Each ESF Annex identifies the coordinator and the primary and support agencies pertinent 

to the ESF. Several ESFs incorporate multiple components, with primary agencies 

designated for each component to ensure seamless integration of and transition between 

preparedness, response, and recovery activities. 

• ESF Coordinator. The ESF coordinator is the entity with management oversight for 

that particular ESF. The coordinator has ongoing responsibilities throughout the 

preparedness, response, and recovery phases of incident management. The role of the 

ESF coordinator is carried out through a "unified command" approach as agreed upon 

collectively by the designated primary agencies and, as appropriate, support agencies. 

• ESF Primary Agency(ies). An ESF primary agency is a Federal agency with significant 

authorities, roles, resources, or capabilities for a particular function within an ESF. ESFs 

may have multiple primary agencies, and the specific responsibilities of those agencies 

are articulated within the relevant ESF Annex. A Federal agency designated as an ESF 

primary agency serves as a Federal executive agent under the Federal Coordinating 

Officer (or Federal Resource Coordinator for non-Stafford Act incidents) to accomplish 

the ESF mission 

• ESF Support Agencies. Support agencies are those entities with specific capabilities or 

resources that support the primary agency(ies) in executing the mission of the ESF. 
Page 12 National Response Framework: Overview January 2008

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ESF #1 – TRANSPORTATION

January 2008 National Response Framework: Overview Page 13

PURPOSE

Emergency Support Function (ESF) #1 – Transportation provides support to the 

Department of Homeland Security (DHS) by assisting Federal, State, tribal, and local 

governmental entities, voluntary organizations, nongovernmental organizations, and the 

private sector in the management of transportation systems and infrastructure during 

domestic threats or in response to incidents. ESF #1 also participates in prevention, 

preparedness, response, recovery, and mitigation activities. ESF #1 carries out the 

Department of Transportation (DOT)’s statutory responsibilities, including regulation of 

transportation, management of the Nation’s airspace, and ensuring the safety and 

security of the national transportation system. 

CAPABILITIES

ESF #1 embodies considerable intermodal expertise and public- and private-sector 

transportation stakeholder relationships. DOT, with the assistance of the ESF #1 

support agencies, provides transportation assistance in domestic incident management, 

including the following activities: 

• Monitor and report status of and damage to the transportation system and 

infrastructure as a result of the incident. 

• Identify temporary alternative transportation solutions that can be implemented by 

others when systems or infrastructure are damaged, unavailable, or overwhelmed. 

• Perform activities conducted under the direct authority of DOT elements as these 

relate to aviation, maritime, surface, railroad, and pipeline transportation. 

• Coordinate the restoration and recovery of the transportation systems and 

infrastructure. 

• Coordinate and support prevention, preparedness, response, recovery, and 

mitigation activities among transportation stakeholders within the authorities and 

resource limitations of ESF #1 agencies. 

MEMBERS

ESF Coordinator: Department of Transportation (DOT) 

Primary Agency: Department of Transportation (DOT) 

Support Agencies: 

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Energy 

• Department of Homeland Security 

• Department of the Interior 

• Department of Justice 

• Department of State 

• General Services Administration 

• U.S. Postal Service
ESF #1 – TRANSPORTATION

Page 14 National Response Framework: Overview January 2008

CONCEPT OF OPERATIONS OVERVIEW

ESF #1 provides DHS with a single point to obtain key transportation-related 

information, planning, and emergency management, including prevention, 

preparedness, response, recovery, and mitigation capabilities at the Headquarters, 

regional, State, and local levels. The ESF #1 structure integrates DOT and support 

agency capabilities and resources into the National Response Framework and the 

National Incident Management System (NIMS). 

The National Response Coordination Center (NRCC) issues operation orders and mission 

assignments to activate ESF #1 based on the scope and magnitude of the threat or 

incident. The NRCC notifies the DOT Crisis Management Center (CMC), which serves as 

the focal point for the Department’s emergency response and the formal point of contact 

for ESF #1 activation within DOT. 

Immediately upon notification of a threat or an imminent or actual incident, the 

following actions will be taken, as required: 

• Initiate reporting to the Office of the Secretary of Transportation, the National 

Operations Center (NOC) elements, Domestic Readiness Group (DRG), 

Counterterrorism Security Group (CSG), DOT operating administrations and regional 

offices, and the Regional Emergency Transportation Coordinator (RETCO). 

• Activate the DOT Emergency Response Team, if required. 

• Staff ESF #1 at the NRCC. 

• Dispatch staff to the Incident Management Planning Team (IMPT), DRG, CSG, NRCC, 

RRCC(s), Joint Field Office(s), and Evacuation Liaison Team. 

• Activate the Regional Emergency Transportation Coordinator and Representatives 

(RETCO/RETREPs). 

• Inform and invite participation by ESF #1 support agencies, as needed. 

Initial response activities that ESF #1 conducts during emergencies include the 

following: 

• Monitoring and reporting the status of and damage to the transportation system and 

infrastructure. 

• Identifying temporary alternative transportation solutions to be implemented by 

others when primary systems or routes are unavailable or overwhelmed. 

• Implementing appropriate air traffic and airspace management measures. 

• Coordinating the issuance of regulatory waivers and exemptions. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #2 – COMMUNICATIONS

January 2008 National Response Framework: Overview Page 15

PURPOSE

Emergency Support Function (ESF) #2 – Communications supports the restoration of the 

communications infrastructure, facilitates the recovery of systems and applications from 

cyber attacks, and coordinates Federal communications support to response efforts 

during incidents requiring a coordinated Federal response. This ESF implements the 

provisions of the Office of Science and Technology Policy (OSTP) National Plan for 

Telecommunications Support in Non-Wartime Emergencies (NPTS). 

ESF #2 also provides communications support to Federal, State, tribal, and local 

governments and first responders when their systems have been impacted, and provides 

communications and information technology (IT) support to the Joint Field Office (JFO) 

and JFO field teams. 

With the rapid convergence of communications and IT, the National Communications 

System (NCS) and the National Cyber Security Division (NCSD) work closely to 

coordinate the ESF #2 response to cyber incidents. This convergence requires increased 

synchronization of effort and capabilities between the communications and IT sectors to 

facilitate ESF #2’s ability to respond to all types of incidents. 

CAPABILITIES

ESF #2: 

• Coordinates Federal actions to assist industry in restoring the public communications 

infrastructure and to assist State, tribal, and local governments with emergency 

communications and restoration of public safety communications systems and first 

responder networks. 

• Supports Federal departments and agencies in procuring and coordinating National 

Security and Emergency Preparedness (NS/EP) communications services. 

• Provides communications support to the JFO and any JFO field teams. 

• Addresses cyber security issues that result from or occur in conjunction with 

incidents. However, for incidents that are primarily cyber in nature, the Cyber 

Incident Annex is used and ESF #2 supports responses to cyber incidents as 

directed.

MEMBERS

ESF Coordinator: Department of Homeland Security (DHS)/National Protection and 

Programs/Cybersecurity and Communications/National Communications System 

Primary Agencies: 

Department of Homeland Security (DHS)/National Protection and 

Programs/Cybersecurity and Communications/National Communications System 

Department of Homeland Security (DHS)/Federal Emergency Management Agency 

(FEMA) 
ESF #2 – COMMUNICATIONS

Page 16 National Response Framework: Overview January 2008

Support Agencies:

• Department of Agriculture/Forest 

Service 

• Department of Commerce 

• Department of Defense 

• Department of Homeland Security 

• Department of the Interior 

• Federal Communications 

Commission 

• General Services Administration 

DHS/FEMA activates ESF #2 when a significant impact to the communications 

infrastructure is expected or has occurred. When activated, ESF #2 provides 

communications support to the impacted area, as well as internally to the JFO and 

associated Federal JFO teams. ESF #2 support is scalable to meet the specific needs of 

each incident response, and response resources are drawn from a matrix of personnel 

and equipment available from the ESF #2 support agencies. 

CONCEPT OF OPERATIONS OVERVIEW

NCS: 

• Acts as the ESF #2 primary agency in accordance with the Memorandum from OSTP 

to the Manager, NCS, dated June 11, 1993, to include exercising primary 

responsibility for restoration of telecommunications in an incident area. 

• Coordinates the planning for and provision of NS/EP communications for the Federal 

Government under all circumstances, including crisis or emergency, attack, recovery, 

and reconstitution, in accordance with Executive Order 12472. 

• Designates an FECC to lead ESF #2 when it is activated. 

• Designates a team lead for a component responsible for communications 

infrastructure restoration functions. 

• Coordinates the restoration of communications infrastructure and supports Federal 

departments and agencies in procuring and coordinating NS/EP communications 

services when the component responsible for communications infrastructure 

restoration functions becomes operational. 

FEMA: 

• Provides short-term restoration support to State, tribal, and local government 

emergency communications in the event of a failure. 

• Designates a team lead for a component responsible for tactical communications 

functions and personnel to support tactical communications functions. 

• Coordinates with NCS and support agencies to develop appropriate documentation, 

policies, and procedures pertinent to tactical communications functions. 

• Provides communications support to State, tribal, and local first responders. 

• Coordinates the restoration of public safety communications systems and first 

responder networks. 

• Provides communications and information technology support to the JFO, JFO field 

teams, and other Federal response/recovery facilities within the area of operation. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #3 – PUBLIC WORKS AND ENGINEERING

January 2008 National Response Framework: Overview Page 17

PURPOSE

Emergency Support Function (ESF) #3 – Public Works and Engineering assists the 

Department of Homeland Security (DHS) by coordinating and organizing the capabilities 

and resources of the Federal Government to facilitate the delivery of services, technical 

assistance, engineering expertise, construction management, and other support to 

prepare for, respond to, and/or recover from a disaster or an incident requiring a 

coordinated Federal response. 

CAPABILITIES

ESF #3 is structured to provide public works and engineering-related support for the 

changing requirements of domestic incident management to include preparedness, 

response, and recovery actions. 

Activities include: 

• Conducting preincident and postincident assessments of public works and 

infrastructure. 

• Executing emergency contract support for life-saving and life-sustaining services. 

• Providing technical assistance to include engineering expertise, construction 

management, and contracting and real estate services. 

• Providing emergency repair of damaged public infrastructure and critical facilities. 

• Implementing and managing the DHS/Federal Emergency Management Agency 

(FEMA) Public Assistance Program and other recovery programs. 

MEMBERS

ESF Coordinator: Department of Defense (DOD)/U.S. Army Corps of Engineers 

Primary Agencies: 

Department of Defense (DOD)/U.S. Army Corps of Engineers 

Department of Homeland Security (DHS)/Federal Emergency Management Agency 

(FEMA) 

Support Agencies:

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Energy 

• Department of Health and Human 

Services 

• Department of Homeland Security 

• Department of the Interior 

• Department of Labor 

• Department of State 

• Department of Transportation 

• Department of Veterans Affairs 

• Environmental Protection Agency 

• General Services Administration 

• Nuclear Regulatory Commission 

• Tennessee Valley Authority 

• American Red Cross 

• Corporation for National and 

Community Service
ESF #3 – PUBLIC WORKS AND ENGINEERING

Page 18 National Response Framework: Overview January 2008

CONCEPT OF OPERATIONS OVERVIEW

The Department of Defense (DOD)/U.S. Army Corps of Engineers (USACE) is the 

primary agency for providing ESF #3 technical assistance, engineering, and construction 

management resources and support during response activities. 

DHS/FEMA is the primary agency for providing ESF #3 recovery resources and support, 

to include assistance under the DHS/FEMA Stafford Act Public Assistance Program. The 

Public Assistance Program provides supplemental Federal disaster grant assistance for 

debris removal and disposal; emergency protective measures; and the repair, 

replacement, or restoration of disaster-damaged public facilities and the facilities of 

certain qualified private nonprofit organizations. 

Close coordination is maintained with Federal, State, tribal, and local officials to 

determine potential needs for support and to track the status of response and recovery 

activities. 

Priorities are determined jointly among State, tribal, and/or local officials. Federal 

ESF #3 support is integrated into the overall Federal, State, tribal, local, 

nongovernmental organization (NGO), and private-sector efforts. 

Support agency representatives collocate with ESF #3 field personnel to coordinate 

support as necessary. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #4 – FIREFIGHTING

January 2008 National Response Framework: Overview Page 19

PURPOSE

Emergency Support Function (ESF) #4 – Firefighting provides Federal support for the 

detection and suppression of wildland, rural, and urban fires resulting from, or occurring 

coincidentally with, an incident requiring a coordinated Federal response for assistance. 

CAPABILITIES

ESF #4 manages and coordinates firefighting activities, including: 

• Detecting and suppressing fires on Federal lands. 

• Providing personnel, equipment, and supplies in support of State, tribal, and local 

agencies involved in rural and urban firefighting operations. 

MEMBERS

ESF Coordinator: Department of Agriculture/Forest Service 

Primary Agency: Department of Agriculture/Forest Service 

Support Agencies:

• Department of Commerce 

• Department of Defense 

• Department of Homeland Security 

• Department of the Interior 

• Department of State 

• Environmental Protection Agency

CONCEPT OF OPERATIONS OVERVIEW

ESF #4 uses established firefighting and support organizations, processes, and 

procedures of the National Incident Management System (NIMS) as outlined in the 

National Interagency Mobilization Guide. Responsibility for situation assessment and 

determination of resource needs lies primarily with the local Incident Commander. 

States have the option of requesting interstate and intrastate firefighting assistance and 

resources, both utilizing existing agreements. Intrastate resources would be requested 

under local or statewide mutual aid and assistance agreements. Interstate resources, 

including National Guard firefighting resources from other States, would be requested 

through the Emergency Management Assistance Compact (EMAC), other compacts, or 

State-to-State mutual aid and assistance agreements. 

Requests for Federal assistance in obtaining firefighting resources for incidents other 

than wildland fires are transmitted from the Regional Response Coordination Center 

(RRCC) or Joint Field Office (JFO) ESF #4 representative to the appropriate Geographic 

Area Coordination Center (GACC). For wildland fire incidents, requests for assistance in 

obtaining firefighting resources are submitted as per the National Interagency 

Mobilization Guide to the GACC and coordinated with the JFO. For resources beyond 

those available within the geographic area, the requests are sent to the National 

Interagency Coordination Center (NICC) in Boise, ID, by the Geographical Area 
ESF #4 – FIREFIGHTING

Page 20 National Response Framework: Overview January 2008

Coordinator. The NICC contacts the national ESF #4 coordinator in the event of 

national-level shortages or unavailability of needed resources. 

All Federal military personnel and resources for firefighting and incident management 

activities will be requested through the NICC in coordination with the Defense 

Coordinating Officer and the National Response Coordination Center. 

Shortages of critical resources are adjudicated at the lowest jurisdictional level. If 

needed, resolution would begin at the JFO, then progress to the NRCC, and then to the 

Domestic Readiness Group (DRG). 

Actual firefighting operations are managed under the Incident Command System 

element of the NIMS Command and Management component. 

Situation and damage assessment information is transmitted through established 

channels and directly between the headquarters-level and regional-level functions 

according to NIMS procedures. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 

 
ESF #5 – EMERGENCY MANAGEMENT

January 2008 National Response Framework: Overview Page 21

PURPOSE

Emergency Support Function (ESF) #5 – Emergency Management is responsible for 

supporting overall activities of the Federal Government for domestic incident 

management. ESF #5 provides the core management and administrative functions in 

support of National Response Coordination Center (NRCC), Regional Response 

Coordination Center (RRCC), and Joint Field Office (JFO) operations. 

CAPABILITIES

ESF #5 serves as the coordination ESF for all Federal departments and agencies across 

the spectrum of domestic incident management from hazard mitigation and 

preparedness to response and recovery. 

ESF #5 preparedness activities include: 

• Identifying resources for alert, activation, and subsequent deployment. 

• Ensuring that there are trained and experienced staff to fill appropriate positions in 

the NRCC, RRCC, Initial Operating Facility, and JFO, when activated or established. 

During the postincident response phase, ESF #5 is responsible for the support and 

planning functions. ESF #5 activities include those functions that are critical to support 

and facilitate multiagency planning and coordination, including: 

• Alerts and notifications. 

• Staffing and deploying of Department of Homeland Security (DHS) and DHS/Federal 

Emergency Management Agency (FEMA) response teams, as well as response teams 

from other Federal departments and agencies. 

• Incident action planning. 

• Coordination of operations, direction, and control. 

• Logistics management. 

• Information collection, analysis, and management. 

• Facilitation of requests for Federal assistance. 

• Resource acquisition and management. 

• Federal worker safety and health. 

• Facilities management. 

• Financial management. 
ESF #5 – EMERGENCY MANAGEMENT

Page 22 National Response Framework: Overview January 2008

MEMBERS

ESF Coordinator: Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) 

Primary Agency: Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) 

Support Agencies:

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Education 

• Department of Energy 

• Department of Health and Human 

Services 

• Department of Homeland Security 

• Department of Housing and Urban 

Development 

• Department of the Interior 

• Department of Justice 

• Department of Labor 

• Department of State 

• Department of Transportation 

• Department of the Treasury 

• Department of Veterans Affairs 

• Environmental Protection Agency 

• Federal Communications 

Commission 

• General Services Administration 

• National Aeronautics and Space 

Administration 

• Nuclear Regulatory Commission 

• Office of Personnel Management 

• Small Business Administration 

• Tennessee Valley Authority 

• U.S. Postal Service 

• American Red Cross 

CONCEPT OF OPERATIONS OVERVIEW

The NRCC, staffed by ESF #5 and other ESFs when activated, monitors potential or 

developing incidents and supports the efforts of regional and field operations. In the 

event of a no-notice event, the Secretary of Homeland Security or his or her designee 

may direct execution of the Catastrophic Incident Supplement depending of the size of 

the incident. 

The RRCC, staffed by ESF #5 and other ESFs as required, coordinates operations and 

situational reporting to the NRCC until the JFO is operational. Once the JFO is 

operational, the RRCC assumes a monitoring role. 

ESF #5 operations transition from the RRCC to the JFO when the JFO is established. 

When the JFO begins to stand-down operations, ESF #5 operations transition back to 

the RRCC, as required. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #6 – MASS CARE, EMERGENCY ASSISTANCE, HOUSING,

AND HUMAN SERVICES

January 2008 National Response Framework: Overview Page 23

PURPOSE

Emergency Support Function (ESF) #6 – Mass Care, Emergency Assistance, Housing, 

and Human Services coordinates the delivery of Federal mass care, emergency 

assistance, housing, and human services when local, tribal, and State response and 

recovery needs exceed their capabilities. 

CAPABILITIES

ESF #6 is organized into the following four primary functions: 

• Mass Care: Includes sheltering, feeding operations, emergency first aid, bulk 

distribution of emergency items, and collecting and providing information on victims 

to family members. 

• Emergency Assistance: Assistance required by individuals, families, and their 

communities to ensure that immediate needs beyond the scope of the traditional 

“mass care” services provided at the local level are addressed. These services 

include: support to evacuations (including registration and tracking of evacuees); 

reunification of families; provision of aid and services to special needs populations; 

evacuation, sheltering, and other emergency services for household pets and 

services animals; support to specialized shelters; support to medical shelters; 

nonconventional shelter management; coordination of donated goods and services; 

and coordination of voluntary agency assistance. 

• Housing: Includes housing options such as rental assistance, repair, loan 

assistance, replacement, factory-built housing, semipermanent and permanent 

construction, referrals, identification and provision of accessible housing, and access 

to other sources of housing assistance. This assistance is guided by the National 

Disaster Housing Strategy. 

• Human Services: Includes the implementation of disaster assistance programs to 

help disaster victims recover their nonhousing losses, including programs to replace 

destroyed personal property, and help to obtain disaster loans, food stamps, crisis 

counseling, disaster unemployment, disaster legal services, support and services for 

special needs populations, and other Federal and State benefits. 

MEMBERS

ESF Coordinator: Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) 

Primary Agency: Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) 
ESF #6 – MASS CARE, EMERGENCY ASSISTANCE, HOUSING,

AND HUMAN SERVICES

Page 24 National Response Framework: Overview January 2008

Support Agencies:

• Department of Agriculture 

• Department of Defense 

• Department of Health and Human 

Services 

• Department of Homeland Security 

• Department of Housing and Urban 

Development 

• Department of the Interior 

• Department of Justice 

• Department of Labor 

• Department of Transportation 

• Department of the Treasury 

• Department of Veterans Affairs 

• General Services Administration 

• Small Business Administration 

• Social Security Administration 

• U.S. Postal Service 

• American Red Cross 

• Corporation for National and 

Community Service 

• National Voluntary Organizations 

Active in Disaster 

• Other voluntary agency and 

nongovernmental support 

organizations 

CONCEPT OF OPERATIONS OVERVIEW

DHS/FEMA will coordinate Federal response and recovery operations in close 

coordination with local, tribal, and State governments, voluntary agencies (VOLAGs), 

and the private sector. 

ESF #6 assistance is managed and coordinated at the lowest possible organizational 

level—e.g., the Joint Field Office (JFO) and the Regional Response Coordination Center 

(RRCC). 

Only requests that cannot be filled or issues that cannot be resolved at the RRCC/JFO 

levels are elevated to the National Response Coordination Center (NRCC) ESF #6 Branch 

for resolution. 

Initial response activities will focus on immediate needs of victims. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #7 – LOGISTICS MANAGEMENT AND RESOURCE SUPPORT

January 2008 National Response Framework: Overview Page 25

PURPOSE

Emergency Support Function (ESF) #7 – Logistics Management and Resource Support 

assists the Department of Homeland Security (DHS) in providing a comprehensive, 

national disaster logistics planning, management, and sustainment capability that 

harnesses the resources of Federal logistics partners, key public and private 

stakeholders, and nongovernmental organizations (NGOs) to meet the needs of disaster 

victims and responders. 

CAPABILITIES

ESF #7 provides logistics management and resource support to Federal, State, tribal, 

and local governments. The General Services Administration (GSA) and DHS/Federal 

Emergency Management Agency (FEMA) provide support which consists of: 

• GSA providing: emergency relief supplies; facility space; office equipment; office 

supplies; telecommunications (in accordance with the Office of Science and 

Technology Policy National Plan for Telecommunications Support in Non-Wartime 

Emergencies); contracting services; transportation services; personnel required to 

support immediate response activities; and support for requirements not specifically 

identified in other ESFs, including excess and surplus property. 

• DHS/FEMA Logistics providing a nationally integrated process for the collaborative 

implementation of the logistics capability of Federal agencies, public- and privatesector partners, and nongovernmental organizations. 

MEMBERS

ESF Coordinators: General Services Administration (GSA) 

Department of Homeland Security (DHS)/Federal Emergency Management Agency 

(FEMA) 

Primary Agencies: 

General Services Administration (GSA) 

Department of Homeland Security (DHS)/Federal Emergency Management Agency 

(FEMA) 

Support Agencies: 

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Energy 

• Department of Health and Human 

Services 

• Department of Homeland Security 

• Department of the Interior 

• Department of Labor 

• Department of Transportation 

• Department of Veterans Affairs 

• National Aeronautics and Space 

Administration 

• Office of Personnel Management 
ESF #7 – LOGISTICS MANAGEMENT AND RESOURCE SUPPORT

Page 26 National Response Framework: Overview January 2008

CONCEPT OF OPERATIONS OVERVIEW

GSA activities are conducted primarily within the various organizational elements 

detailed in the National Response Framework core document. 

The DHS/FEMA Logistics adaptation of a supply chain management approach to 

managing the national logistics processes focuses the efforts of all partners and 

stakeholders of the end-to-end supply chain processes, beginning with planning of 

customer-driven requirements for materiel and services, delivery to disaster victims as 

requested by the State or tribe, and ending with replenishment of agency inventories. 

Supply chain planning occurs at all levels within the national logistics management 

process. Strategic planning occurs within FEMA’s Logistics Management Directorate 

supported by the following GSA elements: the Office of Emergency Response and 

Recovery, Public Building Service (PBS), and Federal Acquisition Service (FAS). 

The headquarters- and regional-level Logistics Management Structures are managed by 

DHS/FEMA. 

The headquarters-level Resource Support Structure is operated under the direction of 

the GSA Emergency Coordinator (EC) while the regional-level Resource Support 

Structure is operated under the direction of the GSA Regional Administrator (RA), 

Regional Emergency Coordinator (REC), or Deputy REC (DREC). 

In the field, DHS/FEMA and GSA will provide staff to support the ESF #7 mission and the 

Logistics Section in the Joint Field Offices, Regional Response Coordination Centers, 

National Response Coordination Center, Federal Mobilization Centers (MOB Centers), and 

National Logistics Staging Areas for management and accountability of Federal supplies 

and equipment; resource ordering; delivery of equipment, supplies, and services; 

resource tracking; facility location and operations; transportation coordination; and 

management and support of information technology systems services and other 

administrative services. 

The primary determination of supply and service requirements is made by operational 

elements at the regional level working in concert with the affected State. Requests for 

resources flow upward and are tracked at the headquarters level. Existing Federal 

resources provide the primary source of personnel, equipment, materials, and supplies. 

Support that cannot be provided from Federal resources is secured through direct 

procurement or donations. 

Upon notification of an incident requiring a coordinated Federal response, the GSA EC 

makes an initial determination of which ESF #7 support agencies are required to provide 

immediate support and which are required to remain on standby. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #8 – PUBLIC HEALTH AND MEDICAL SERVICES

January 2008 National Response Framework: Overview Page 27

PURPOSE

Emergency Support Function (ESF) #8 – Public Health and Medical Services provides the 

mechanism for coordinated Federal assistance to supplement State, tribal, and local 

resources in response to a public health and medical disaster, potential or actual 

incidents requiring a coordinated Federal response, and/or during a developing potential 

health and medical emergency. Public Health and Medical Services include responding 

to medical needs associated with mental health, behavioral health, and substance abuse 

considerations of incident victims and response workers. Services also cover the 

medical needs of members of the “at risk” or “special needs” population described in the 

Pandemic and All-Hazards Preparedness Act and in the National Response Framework 

(NRF) Glossary, respectively. It includes a population whose members may have 

medical and other functional needs before, during, and after an incident. 

CAPABILITIES

Public Health and Medical Services includes behavioral health needs consisting of both 

mental health and substance abuse considerations for incident victims and response 

workers and, as appropriate, medical needs groups defined in the core document as 

individuals in need of additional medical response assistance, and veterinary and/or 

animal health issues. 

ESF #8 provides supplemental assistance to State, tribal, and local governments in the 

following core functional areas: 

• Assessment of public health/medical needs 

• Health surveillance 

• Medical care personnel 

• Health/medical/veterinary equipment and supplies 

• Patient evacuation 

• Patient care 

• Safety and security of drugs, biologics, and medical devices 

• Blood and blood products 

• Food safety and security 

• Agriculture safety and security 

• All-hazard public health and medical consultation, technical assistance, and support 

• Behavioral health care 

• Public health and medical information 

• Vector control 

• Potable water/wastewater and solid waste disposal 

• Mass fatality management, victim identification, and decontaminating remains 

• Veterinary medical support 
ESF #8 – PUBLIC HEALTH AND MEDICAL SERVICES

Page 28 National Response Framework: Overview January 2008

MEMBERS

ESF Coordinator: Department of Health and Human Services (HHS) 

Primary Agency: Department of Health and Human Services (HHS) 

Support Agencies: 

• Department of Agriculture 

• Department of Defense 

• Department of Energy 

• Department of Homeland Security 

• Department of the Interior 

• Department of Justice 

• Department of Labor 

• Department of State 

• Department of Transportation 

• Department of Veterans Affairs 

• Environmental Protection Agency 

• General Services Administration 

• U.S. Agency for International 

Development 

• U.S. Postal Service 

• American Red Cross

CONCEPT OF OPERATIONS OVERVIEW

The Secretary of HHS leads the ESF #8 response. ESF #8, when activated, is 

coordinated by the Assistant Secretary for Preparedness and Response (ASPR). Once 

activated, ESF #8 functions are coordinated by the Emergency Management Group 

(EMG) through the Secretary’s Operations Center. During the initial activation, HHS 

coordinates audio and video conference calls with the ESF #8 supporting departments 

and agencies, and public health and medical representatives from State, tribal, and local 

officials, to discuss the situation and determine the appropriate initial response actions. 

HHS alerts and requests supporting organizations to provide a representative to the EMG 

to provide liaison support. 

HHS may designate a Senior Health Official to serve as the senior Federal health official 

in the Joint Field Office (JFO). 

Regional ESF #8 staff are ready to rapidly deploy, as the Incident Response Coordination 

Team – Advance (IRCT-A), to provide initial ESF #8 support to the affected location. As 

the situation matures, the IRCT-A will receive augmentation from HHS and partner 

agencies transitioning into a full IRCT capable of providing the full range of ESF #8 

support to include medical command and control. 

The regional ESF #8 staff includes representatives to staff the Regional Response 

Coordination Center and/or JFO, as required, on a 24-hour basis for the duration of the 

incident 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #9 – SEARCH AND RESCUE

January 2008 National Response Framework: Overview Page 29

PURPOSE

Emergency Support Function (ESF) #9 – Search and Rescue rapidly deploys components 

of the Federal Search and Rescue (SAR) Response System to provide specialized 

lifesaving assistance to State, tribal, and local authorities when activated for incidents or 

potential incidents requiring a coordinated Federal response. 

CAPABILITIES

Search and rescue capabilities include distress monitoring, communications, location of 

distressed personnel, coordination, and execution of rescue operations including 

extrication or evacuation along with the provisioning of medical assistance and civilian 

services through the use of public and private resources to assist persons and property 

in potential or actual distress. 

ESF #9 provides the following specialized SAR services during incidents or potential 

incidents requiring a coordinated Federal response: 

• Structure Collapse (Urban) Search and Rescue (US&R) 

• Waterborne Search and Rescue 

• Inland/Wilderness Search and Rescue 

• Aeronautical Search and Rescue 

MEMBERS

ESF Coordinator: Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) 

Primary Agencies: 

Department of Homeland Security (DHS)/ Federal Emergency Management Agency 

(FEMA) 

Department of Homeland Security (DHS)/U.S. Coast Guard (USCG) 

Department of the Interior (DOI)/National Park Service (NPS) 

Department of Defense (DOD) 

Support Agencies: 

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Health and Human 

Services 

• Department of Homeland Security 

• Department of Justice 

• Department of Labor 

• National Aeronautical and Space 

Administration 

• U.S. Agency for International 

Development
ESF #9 – SEARCH AND RESCUE

Page 30 National Response Framework: Overview January 2008

CONCEPT OF OPERATIONS OVERVIEW

Immediate SAR operations are conducted in accordance with the National Search and 

Rescue Plan (NSP) and the U.S. National Search and Rescue Supplement (NSS) to the 

International Aeronautical and Maritime Search and Rescue Manual, which defines SAR 

responsibilities and provides guidance to the Federal agencies with civil SAR mandates. 

Federal SAR response assists and augments State and local SAR capabilities in incidents 

requiring a coordinated Federal response or in accordance with the NSP, which defines 

the responsibilities and provides guidance to Federal agencies with civil SAR mandates. 

Activation is dependent upon the nature and magnitude of the event, the suddenness of 

onset, and the existence of SAR resources in the affected area. 

DHS/FEMA initiates the National Urban Search and Rescue (US&R) Response System for 

incidents requiring a coordinated Federal response that are likely to involve collapsed 

structures. The ESF #9 construct follows the National US&R Response System, which 

consists of US&R Task Forces, Incident Support Teams, and technical specialists as 

defined in the Urban Search and Rescue Operations System Description. 

DHS/USCG initiates Federal waterborne SAR response activities for incidents requiring a 

coordinated Federal response that are likely to result in waterborne or maritime distress. 

The ESF #9 construct follows the SAR response structure outlined in the NSP, NSS, and 

the U.S. Coast Guard Addendum to the NSS. DHS/USCG coordinates ESF #9 response 

from an agency-designated command center (Area/District/Sector) or the nearest 

DHS/USCG Rescue Coordination Center (RCC), Rescue Sub-Center (RSC), or Joint 

Rescue Coordination Center (JRCC) to the affected area. 

DOI/NPS initiates Federal SAR response activities for incidents requiring a coordinated 

Federal response that are likely to result in a distress situation in inland/wilderness 

areas. The ESF #9 construct reflects the SAR response structure as outlined in the NSP 

and NSS and other relevant DOI SAR procedures and SAR manuals. DOI coordinates 

ESF #9 response from one of its regional offices. 

DOD/U.S. Air Force (USAF)/Air Force Rescue Coordination Center (AFRCC) initiates DOD 

SAR response operations conducted in aviation-related incidents. The ESF #9 construct 

follows the SAR response structure as outlined in the NSP, NSS, and the Air Force 

Rescue Coordination Center Operations Instructions. DOD/USAF/AFRCC coordinates 

initial activities from its Rescue Coordination Center. If significant DOD resources are 

required and/or a Joint Task Force (JTF) is activated, the AFRCC coordinates DOD 

response with the JTF. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #10 – OIL AND HAZARDOUS MATERIALS RESPONSE

January 2008 National Response Framework: Overview Page 31

PURPOSE

Emergency Support Function (ESF) #10 – Oil and Hazardous Materials Response 

provides Federal support in response to an actual or potential discharge and/or 

uncontrolled release of oil or hazardous materials when activated. ESF #10 provides for 

a coordinated Federal response to actual or potential oil and hazardous materials 

incidents. 

CAPABILITIES

The scope of ESF #10 includes the appropriate actions to prepare for, respond to, and 

recover from a threat to public health, welfare, or the environment caused by actual or 

potential oil and hazardous materials incidents. Appropriate general actions can include, 

but are not limited to efforts to: 

• Prevent, minimize, or mitigate a release. 

• Detect and assess the extent of contamination (including sampling and analysis and 

environmental monitoring). 

• Stabilize the release and prevent the spread of contamination. 

• Analyze options for environmental cleanup and waste disposition. 

• Implement environmental cleanup. 

• Store, treat, and dispose of oil and hazardous materials. 

Examples of specific actions include: 

• Sampling a drinking water supply to determine if there has been intentional 

contamination. 

• Stabilizing the release through the use of berms, dikes, or impoundments. 

• Capping of contaminated soils or sludge. 

• Decontaminating buildings and structures. 

• Using drainage controls, fences, warning signs, or other security or site-control 

precautions. 

• Removing highly contaminated soils from drainage areas. 

For a chemical, biological, or radiological Weapons of Mass Destruction (WMD) incident, 

ESF #10 may also provide, as needed, a Technical Specialist(s) to provide scientific and 

technical expertise and to coordinate scientific and technical issues with other 

responding agencies and with other ESF #10 headquarters, regional, and on-scene 

response elements. 

MEMBERS

ESF Coordinator: Environmental Protection Agency (EPA) 

Primary Agencies: 

Environmental Protection Agency (EPA) 

Department of Homeland Security (DHS)/U.S. Coast Guard (USCG) 
ESF #10 – OIL AND HAZARDOUS MATERIALS RESPONSE

Page 32 National Response Framework: Overview January 2008

Support Agencies: 

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Energy 

• Department of Health and Human 

Services 

• Department of Homeland Security 

• Department of the Interior 

• Department of Justice 

• Department of Labor 

• Department of State 

• Department of Transportation 

• General Services Administration 

• Nuclear Regulatory Commission 

CONCEPT OF OPERATIONS OVERVIEW

For incidents where EPA is a primary agency, the Director, Office of Emergency 

Management, Office of Solid Waste and Emergency Response, EPA, serves as the lead 

for ESF #10. 

For incidents where DHS/USCG is the primary agency, the Chief, Office of Incident 

Management and Preparedness, DHS/USCG, serves as the lead for ESF #10. 

At the JFO level, ESF #10 typically provides a representative(s) to coordinate ESF #10 

mission assignments and provide information to the JFO on ESF #10 on-scene activities. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #11 – AGRICULTURE AND NATURAL RESOURCES

January 2008 National Response Framework: Overview Page 33

PURPOSE

Emergency Support Function (ESF) #11 – Agriculture and Natural Resources supports 

State, tribal, and local authorities and other Federal agency efforts to: 

• Provide nutrition assistance. 

• Control and eradicate, as appropriate, any outbreak of a highly contagious or 

economically devastating animal/zoonotic (i.e., transmitted between animals and 

people) disease or any outbreak of an economically devastating plant pest or 

disease. 

• Ensure the safety and security of the commercial food supply. 

• Protect natural and cultural resources and historic properties (NCH) resources. 

• Provide for the safety and well-being of household pets during an emergency 

response or evacuation situation. 

CAPABILITIES

ESF #11 includes the following five primary functions: 

1. Providing nutrition assistance: Includes working with State agencies to 

determine nutrition assistance needs, obtain appropriate food supplies, arrange for 

delivery of the supplies, and authorize the Disaster Food Stamp Program. These 

efforts are coordinated by the Department of Agriculture (USDA), Food and Nutrition 

Service (FNS). 

2. Responding to animal and plant diseases and pests: Includes implementing an 

integrated Federal, State, tribal, and local response to an outbreak of a highly 

contagious or economically devastating animal/zoonotic disease, or an outbreak of a 

harmful or economically significant plant pest or disease. ESF #11 ensures, in 

coordination with ESF #8 – Public Health and Medical Services, that 

animal/veterinary issues in natural disasters are supported. These efforts are 

coordinated by USDA’s Animal and Plant Health Inspection Service (APHIS). 

3. Ensuring the safety and security of the commercial food supply: Includes the 

execution of routine food safety inspections and other services to ensure the safety 

of food products that enter commerce. This includes the inspection and verification 

of food safety aspects of slaughter and processing plants, products in distribution 

and retail sites, and import facilities at ports of entry; laboratory analysis of food 

samples; control of products suspected to be adulterated; plant closures; foodborne 

disease surveillance; and field investigations. These efforts are coordinated by 

USDA’s Food Safety and Inspection Service (FSIS). 

4. Protecting NCH resources: Includes appropriate response actions to preserve, 

conserve, rehabilitate, recover, and restore NCH resources. This includes providing 

postevent baseline assessments of damages and providing technical assistance and 

resources for assessing impacts of response and recovery activities to NCH 

resources. These efforts are coordinated by the Department of the Interior (DOI). 

5. Providing for the safety and well-being of household pets: Supports the 

Department of Homeland Security (DHS)/Federal Emergency Management Agency 

(FEMA) together with ESF #6 – Mass Care, Emergency Assistance, Housing, and 

Human Services; ESF #8; ESF #9 – Search and Rescue; and ESF #14 – Long-Term 
ESF #11 – AGRICULTURE AND NATURAL RESOURCES

Page 34 National Response Framework: Overview January 2008

Community Recovery to ensure an integrated response that provides for the safety 

and well-being of household pets. The ESF #11 effort is coordinated by 

USDA/APHIS. 

MEMBERS

ESF Coordinator: Department of Agriculture (USDA) 

Primary Agencies: 

Department of Agriculture (USDA) 

Department of the Interior (DOI) 

Support Agencies:

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Energy 

• Department of Health and Human 

Services 

• Department of Homeland Security 

• Department of the Interior 

• Department of Justice 

• Department of Labor 

• Department of State 

• Department of Transportation 

• Environmental Protection Agency 

• General Services Administration 

• National Archives and Records 

Administration 

• U.S. Postal Service 

• Advisory Council on Historic 

Preservation 

• American Red Cross 

• Heritage Emergency National Task 

Force 

CONCEPT OF OPERATIONS OVERVIEW

Once ESF #11 is activated, the national response is coordinated by USDA at the National 

Response Coordination Center. The coordinator convenes a conference call with 

appropriate support agencies and non-Federal partners to assess the situation and 

determine appropriate actions. The agency then alerts supporting organizations and 

requests that they provide representation. 

The headquarters ESF operates under the direction of the USDA coordinator. When the 

assistance needed involves NCH resources protection, DOI provides headquarters 

direction and coordination. When an incident requires assistance from more than one of 

the ESF #11 functions, USDA provides the overall direction. 

At the regional level, ESF #11 operates under the direction of a USDA coordinator, who 

is determined based upon the assistance needed for the specific incident. When an 

incident requires assistance from more than one of the ESF #11 functions, USDA 

provides the regional point of contact within the Regional Response Coordination Center 

and represents ESF #11 in its dealings with the Unified Coordination Group. ESF #11 

will have staff on duty at the Joint Field Office on a 24-hour basis, as needed for the 

duration of the emergency. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #12 – ENERGY

January 2008 National Response Framework: Overview Page 35

PURPOSE

Emergency Support Function (ESF) #12 – Energy is intended to facilitate the restoration 

of damaged energy systems and components when activated by the Secretary of 

Homeland Security for incidents requiring a coordinated Federal response. Under 

Department of Energy (DOE) leadership, ESF #12 is an integral part of the larger DOE 

responsibility of maintaining continuous and reliable energy supplies for the United 

States through preventive measures and restoration and recovery actions. 

The term “energy” includes producing, refining, transporting, generating, transmitting, 

conserving, building, distributing, maintaining, and controlling energy systems and 

system components. All energy systems are considered critical infrastructure.

CAPABILITIES

ESF #12 collects, evaluates, and shares information on energy system damage and 

estimations on the impact of energy system outages within affected areas. Additionally, 

it provides information concerning the energy restoration process such as projected 

schedules, percent completion of restoration, and geographic information on the 

restoration. ESF #12 facilitates the restoration of energy systems through legal 

authorities and waivers. ESF #12 also provides technical expertise to the utilities, 

conducts field assessments, and assists government and private-sector stakeholders to 

overcome challenges in restoring the energy system. 

ESF #12 provides the appropriate supplemental Federal assistance and resources to 

enable restoration in a timely manner. 

Collectively, the primary and support agencies that comprise ESF #12: 

• Serve as the focal point within the Federal Government for receipt of information on 

actual or projected damage to energy supply and distribution systems and 

requirements for system design and operations, and on procedures for preparedness, 

restoration, recovery, and mitigation. 

• Advise Federal, State, tribal, and local authorities on priorities for energy restoration, 

assistance, and supply. 

• Assist industry, State, tribal, and local authorities with requests for emergency 

response actions as required to meet the Nation’s energy demands. 

• Assist Federal departments and agencies by locating fuel for transportation, 

communications, emergency operations, and national defense. 

• Provide guidance on the conservation and efficient use of energy to Federal, State, 

tribal, and local governments and to the public. 

• Provide assistance to Federal, State, tribal, and local authorities utilizing Department 

of Homeland Security (DHS)/Federal Emergency Management Agency (FEMA)-

established communications systems. 
ESF #12 – ENERGY

Page 36 National Response Framework: Overview January 2008

MEMBERS

ESF Coordinator: Department of Energy (DOE) 

Primary Agency: Department of Energy (DOE) 

Support Agencies:

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Homeland Security 

• Department of the Interior 

• Department of Labor 

• Department of State 

• Department of Transportation 

• Environmental Protection Agency 

• Nuclear Regulatory Commission 

• Tennessee Valley Authority 

CONCEPT OF OPERATIONS OVERVIEW

ESF #12 is coordinated through Headquarters DOE. ESF #12 is activated when 

DHS/FEMA notifies the 24-hour Headquarters DOE Emergency Operations Center. 

When activated by DHS/FEMA, ESF #12: 

• Provides representatives to the DHS National Operations Center, Domestic Readiness 

Group, and National Response Coordination Center. 

• Deploys representatives to the Regional Response Coordination Center (RRCC). The 

ESF #12 Team Leader at the RRCC coordinates assignments, actions, and other 

support until the Joint Field Office (JFO) is established and mission-execution 

responsibilities are transferred to the JFO ESF #12 Team Leader. ESF #12 provides 

incident-related reports and information to ESF #5 – Emergency Management. 

• Deploys as members of incident management teams or the Rapid Needs Assessment 

Team. 

• Deploys personnel to the JFO. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #13 – PUBLIC SAFETY AND SECURITY

January 2008 National Response Framework: Overview Page 37

PURPOSE

Emergency Support Function (ESF) #13 – Public Safety and Security integrates Federal 

public safety and security capabilities and resources to support the full range of incident 

management activities associated with potential or actual incidents requiring a 

coordinated Federal response. 

CAPABILITIES

ESF #13 provides a mechanism for coordinating and providing Federal-to-Federal 

support; Federal support to State, tribal, and local authorities; and/or support to other 

ESFs, consisting of noninvestigative law enforcement, public safety, and security 

capabilities and resources during potential or actual incidents requiring a coordinated 

Federal response. 

ESF #13 provides Federal public safety and security assistance to support preparedness, 

response, and recovery priorities in circumstances where local, tribal, or State resources 

are overwhelmed or are inadequate, or where a unique Federal capability is required. 

This may include, but is not limited to, the following activities, when appropriate: 

• Preincident Coordination: Supporting incident management planning activities 

and preincident actions required to assist in the mitigation of threats and hazards. 

This includes developing operational and tactical public safety and security plans, 

conducting technical security and/or vulnerability assessments, and deploying 

Federal public safety and security resources in response to specific threats or 

potential incidents. 

• Technical Assistance: Providing expertise and coordination for security planning 

efforts and conducting technical assessments (e.g., vulnerability assessments, risk 

analyses, surveillance sensor architecture, etc.). 

• Specialized Public Safety and Security Assessment: Identifying the need for 

ESF #13 support and analyzing potential factors (e.g., mapping, modeling, and 

forecasting for crowd size, impact of weather, and other conditions) that may affect 

resource allocations and requisite actions affecting public safety and security. 

• General Law Enforcement Assistance: Providing basic law enforcement 

assistance to Federal, State, tribal, and local agencies during incidents that require a 

coordinated Federal response. Such assistance may include conducting routine 

patrol functions and making arrests as circumstances may require. The ESF #13 

Standard Operating Procedures describe those situations where deputization by 

another Federal law enforcement agency or by a State or local law enforcement 

agency may be necessary, and the process for such deputization. 

• Badging and Credentialing: Assisting State, tribal, and local authorities in the 

establishment of consistent processes for issuing identification badges to emergency 

responders and other personnel needing access to places within a controlled area, 

and verifying emergency responder credentials. 

• Access Control: Providing security forces to support State, tribal, and local efforts 

(or to secure sites under Federal jurisdiction) to control access to the incident site 

and critical facilities. 
ESF #13 – PUBLIC SAFETY AND SECURITY

Page 38 National Response Framework: Overview January 2008

• Site Security: Providing security forces and establishing protective measures 

around the incident site, critical infrastructure, and/or critical facilities. ESF #13 

responsibilities should not be confused with site-security responsibilities of the Office 

of Security of the Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA), which is responsible for providing security for 

DHS/FEMA facilities, to include a Joint Field Office (JFO). DHS/FEMA may request 

ESF #13 assistance if DHS/FEMA resources are overwhelmed. 

• Traffic and Crowd Control: Providing emergency protective services to address 

public safety and security requirements. 

• Force Protection: Providing for the protection of emergency responders and other 

workers operating in a high-threat environment, and for the operational security of 

emergency response operations wherever they may occur. 

• Specialized Security Resources: Providing specialized security assets such as 

traffic barriers; chemical, biological, radiological, nuclear, and high-yield explosives 

detection devices; canine units; law enforcement personal protective gear; etc. 

MEMBERS

ESF Coordinator: Department of Justice (DOJ) 

Primary Agency: Department of Justice (DOJ) 

Support Agencies: All Executive Branch departments and agencies possessing a public 

safety and security capability 

CONCEPT OF OPERATIONS OVERVIEW

ESF #13 is activated in situations requiring extensive public safety and security and 

where State, tribal, and local government resources are overwhelmed or are inadequate, 

or for Federal-to-Federal support or in preincident or postincident situations that require 

protective solutions or capabilities unique to the Federal Government. 

When ESF #13 is activated, DOJ deploys on-call representative(s) to the National 

Response Coordination Center (NRCC). 

DOJ assesses the need for ESF #13 resources and coordinates response assistance and 

support in close cooperation with regional and field ESF #13 elements. 

ESF #13 may provide personnel to staff the National Operations Center, the NRCC, the 

Regional Response Coordination Center, the Incident Command Post, the JFO, the Joint 

Information Center, and operational centers established as described in the Terrorism 

Incident Law Enforcement and Investigation Annex, as circumstances may require. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #14 – LONG-TERM COMMUNITY RECOVERY

January 2008 National Response Framework: Overview Page 39

PURPOSE

Emergency Support Function (ESF) #14 – Long-Term Community Recovery provides a 

mechanism for coordinating Federal support to State, tribal, regional, and local 

governments, nongovernmental organizations (NGOs), and the private sector to enable 

community recovery from the long-term consequences of extraordinary disasters. 

ESF #14 accomplishes this by identifying and facilitating availability and use of sources 

of recovery funding, and providing technical assistance (such as impact analyses) for 

community recovery and recovery planning support. 

CAPABILITIES

ESF #14 may be activated for incidents that require a coordinated Federal response to 

address significant long-term impacts (e.g., impacts on housing, government operations, 

agriculture, businesses, employment, community infrastructure, the environment, 

human health, and social services) to foster sustainable recovery. 

ESF #14 provides the coordination mechanisms for the Federal Government to: 

• Convene interagency recovery expertise to provide strategic guidance to long-term 

recovery efforts. 

• Identify and address long-term recovery issues, including those that fall between 

existing mandates of agencies. 

• Avoid duplication of assistance, coordinate program application processes and 

planning requirements to streamline assistance processes, and identify and 

coordinate resolution of policy and program issues. 

• Identify programs and activities across the public, private, and nonprofit sectors that 

similarly support long-term recovery and promote coordination between them. 

• Identify appropriate Federal programs and agencies to support implementation of 

comprehensive long-term community planning and identify gaps in available 

resources. 

• Identify appropriate Federal programs and agencies to support and facilitate 

continuity of long-term recovery activities. 

• Work with State, tribal, and local governments; NGOs; and private-sector 

organizations to support long-term recovery planning for highly impacted 

communities. 

• Link recovery planning to sound risk reduction practices to encourage a more viable 

recovery. 

• Strategically apply subject-matter expertise to help communities recover from 

disasters. 
ESF #14 – LONG-TERM COMMUNITY RECOVERY

Page 40 National Response Framework: Overview January 2008

MEMBERS

ESF Coordinator: Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) 

Primary Agencies: 

Department of Agriculture (USDA) 

Department of Homeland Security (DHS) 

Department of Housing and Urban Development (HUD) 

Small Business Administration (SBA) 

Support Agencies: 

• Department of Commerce 

• Department of Defense 

• Department of Energy 

• Department of Health and Human 

Services 

• Department of the Interior 

• Department of Labor 

• Department of Transportation 

• Department of the Treasury 

• Environmental Protection Agency 

• Corporation for National and 

Community Service 

• Delta Regional Authority 

• American Red Cross 

• National Voluntary Organizations 

Active in Disaster 

CONCEPT OF OPERATIONS OVERVIEW

ESF #14 provides representatives to the National Response Coordination Center as 

requested. Primary agencies are responsible for coordinating ESF #14 planning and 

recovery activities and strengthening the capabilities of ESF #14. 

Regional and Field Operations: The ESF #14 coordinator and primary agencies meet to 

determine the need to activate ESF #14 elements when the incident is likely to require 

significant Federal long-term community recovery assistance. Support agencies also 

have the right to approach the ESF #14 coordinator to request ESF #14 activation. 

ESF #14 typically organizes within the Operations Section of the Joint Field Office, but 

may support other Sections as required. Agency representation depends on the nature 

and severity of the incident. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
ESF #15 – EXTERNAL AFFAIRS

January 2008 National Response Framework: Overview Page 41

PURPOSE

Emergency Support Function (ESF) #15 – External Affairs ensures that sufficient Federal 

assets are deployed to the field during incidents requiring a coordinated Federal 

response to provide accurate, coordinated, timely and accessible information to affected 

audiences, including governments, media, the private sector, and the local populace, 

including the special needs population. 

CAPABILITIES

ESF #15 coordinates Federal actions to provide the required external affairs support to 

Federal, State, tribal, and local incident management elements. 

Resources provided by the Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) in support of ESF #15 missions include: 

• Emergency Alert System (EAS): The Federal Communications Commission (FCC) 

designed the EAS as a tool for the President to quickly send important emergency 

information to the Nation using radio, television, and cable systems. The EAS may 

also be used by State, tribal, and local authorities to deliver alerts and warnings. 

The EAS is required to deliver all EAS messages visually and aurally to be accessible 

to persons with hearing and vision disabilities. 

• Mobile Emergency Response Support (MERS): DHS/FEMA MERS provides 

mobile telecommunications, operational support, life support, and power generation 

assets for the onsite management of all-hazard activities. MERS provides a 

deployable broadcast radio capability for multimedia communications, information 

processing, logistics, and operational support to Federal, State, and local authorities 

during incidents requiring a coordinated Federal response. 

• National Preparedness Network (PREPnet): PREPnet is a DHS/FEMA television 

broadcast network capable of reaching large portions of the public in an impacted 

area with survival and recovery information before, during, and after catastrophic 

events. PREPnet delivers information via cable television, satellite services, personal 

digital devices, cell phones, and webcasts to both the public at large and to 

emergency responders. As a scalable DHS asset, PREPnet capabilities span a 

spectrum from simple public service announcements on up to 24/7 broadcast of 

recovery information to victims wherever they may have relocated. 

• Recovery Radio Support: When commercial broadcast is impaired in an area, 

DHS/FEMA works with local broadcasters to set up Recovery Radio support, which 

provides official response and recovery information to local stations on an hourly 

basis through a pool feed. Distribution can be provided through the EAS network. 

All broadcasters are required to have equipment to monitor and air EAS programs, 

and most primary EAS stations have portable, remote pick-up equipment that can be 

installed in the Joint information Center (JIC). 
ESF #15 – EXTERNAL AFFAIRS

Page 42 National Response Framework: Overview January 2008

MEMBERS

ESF Coordinator: Department of Homeland Security (DHS) 

Primary Agency: Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) 

Support Agencies: All

CONCEPT OF OPERATIONS OVERVIEW

ESF #15 integrates Public Affairs, Congressional Affairs, Intergovernmental Affairs 

(State, tribal, and local coordination), Community Relations, and the private sector 

under the coordinating auspices of External Affairs. The JIC ensures the coordinated 

release of information under ESF #15. The Planning and Products component of 

External Affairs develops all external and internal communications strategies and 

products for the ESF #15 organization. 

ESF #15 provides the resources and structure for the implementation of the Incident 

Communications Emergency Policy and Procedures (ICEPP). 

The DHS Assistant Secretary for Public Affairs, in coordination with the National 

Response Coordination Center (NRCC), activates and directs ESF #15 procedures. 

The FEMA Office of Public Affairs designates a DHS/FEMA Public Affairs staff member as 

an ESF #15 representative to staff the NRCC as directed. When activated, ESF #15 

activities are implemented in coordination with the DHS Office of Public Affairs (OPA) 

components of the National Operations Center and Domestic Readiness Group (DRG). 

The staff of the DHS OPA coordinates messages with public affairs representatives from 

all involved departments and agencies. 

ESF #15 provides the External Affairs Officer to the Joint Field Office Unified 

Coordination Staff who serves as the primary external affairs advisor to the Federal 

Coordinating Officer/Federal Resource Coordinator, Unified Coordination Group, and 

Principal Federal Official (PFO), if designated. ESF #15 may provide the same support 

to a National Special Security Event. 

The External Affairs Officer reports to the ESF #15 Director and the Unified Coordination 

Group. The External Affairs Officer differs from a press secretary, which may be 

assigned to directly support a PFO, when designated. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center at www.fema.gov/NRF. 
SUPPORT ANNEX 

SUMMARIES

January 2008 National Response Framework: Overview Page 43
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SUPPORT ANNEXES: INTRODUCTION

January 2008 National Response Framework: Overview Page 45

The Support Annexes describe how Federal departments and agencies; State, tribal, and 

local entities; the private sector; volunteer organizations; and nongovernmental 

organizations (NGOs) coordinate and execute the common functional processes and 

administrative requirements within the National Response Framework necessary to ensure 

efficient and effective incident management. During an incident, numerous procedures and 

administrative functions are required to support incident management. 

The actions described in the Support Annexes are not limited to particular types of events 

but are overarching in nature and applicable to nearly every type of incident. In addition, 

they may support several or all Emergency Support Functions (ESFs). Examples include 

public affairs, international affairs, donations and volunteer management, and worker safety 

and health. 

The Support Annexes may be fully or partially implemented without the Secretary of 

Homeland Security coordinating Federal operations. 

The following section includes a series of annexes describing the roles and responsibilities of 

Federal departments and agencies, NGOs, and the private sector for those common 

activities that support the majority of incidents. The annexes address the following areas: 

• Critical Infrastructure and Key Resources 

• Financial Management 

• International Coordination 

• Private-Sector Coordination 

• Public Affairs 

• Tribal Relations 

• Volunteer and Donations Management 

• Worker Safety and Health 

SUPPORT ANNEX MEMBER ROLES AND RESPONSIBILITIES

The overarching nature of functions described in these annexes frequently involves either 

the support to, or the cooperation of, all departments and agencies involved in incident 

management efforts to ensure seamless integration of and transitions between 

preparedness, response, and recovery activities. 

Each annex is managed by one or more coordinating agencies and is supported by various 

cooperating agencies. 

• Coordinating Agency. Federal agencies designated as coordinating agencies are 

responsible for implementation of processes detailed in the annexes. Coordinating 

agencies support the Department of Homeland Security (DHS) incident management 

mission by providing the leadership, expertise, and authorities to implement critical and 

specific aspects of the response. 

• Cooperating Agency. Cooperating agencies are those entities that have specific 

expertise and capabilities to assist the coordinating agency in executing incident-related 

tasks or processes. When the procedures within a Support Annex are needed to support 

elements of an incident, the coordinating agency will notify cooperating agencies of the 

circumstances. 
Page 46 National Response Framework: Overview January 2008

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CRITICAL INFRASTRUCTURE AND KEY RESOURCES

January 2008 National Response Framework: Overview Page 47

 

PURPOSE

The Critical Infrastructure and Key Resources Support Annex describes policies, roles 

and responsibilities, and the concept of operations for assessing, prioritizing, protecting, 

and restoring critical infrastructure and key resources (CIKR) of the United States and 

its territories and possessions during actual or potential domestic incidents. The annex 

details processes to ensure coordination and integration of CIKR-related activities among 

a wide array of public and private incident managers and CIKR security partners within 

immediate incident areas as well as at the regional and national levels. 

SCOPE

This annex addresses integration of the CIKR protection2 and restoration mission as a 

vital component of the Nation’s unified approach to domestic incident management, 

which also may include CIKR-related international considerations. 

Critical infrastructure includes those assets, systems, networks, and functions—physical 

or virtual—so vital to the United States that their incapacitation or destruction would 

have a debilitating impact on security, national economic security, public health or 

safety, or any combination of those matters. Key resources are publicly or privately 

controlled resources essential to minimal operation of the economy and the 

government.3 

MEMBERS

Coordinating Agency: Department of Homeland Security (DHS) 

Cooperating Agencies: 

2 National Infrastructure Protection Plan (NIPP), 2006, Glossary, pg. 104, defines the term protection as “actions to mitigate the overall risk to 

CIKR assets, systems, networks, or their interconnecting links resulting from exposure, injury, destruction, incapacitation, or exploitation. 

In the context of the NIPP, protection includes actions to deter the threat, mitigate vulnerabilities, or minimize consequences associated 

with a terrorist attack or other incident. Protection can include a wide range of activities, such as hardening facilities, building resiliency 

and redundancy, incorporating hazard resistance into initial facility design, initiating active or passive countermeasures, installing security 

systems, promoting workforce surety, and implementing cyber security measures, among various others.” 3

 NIPP, 2006, Glossary of Key Terms, is the source for the definitions of critical infrastructure and key resources. These definitions are 

derived from the provisions of the Homeland Security Act of 2002 and HSPD-7.

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Education 

• Department of Energy 

• Department of Health and Human 

Services 

• Department of the Interior 

• Department of Justice 

• Department of Labor 

• Department of State 

• Department of Transportation 

• Department of the Treasury 

• Department of Veterans Affairs 

• Environmental Protection Agency 

• Federal Energy Regulatory 

Commission 

• Nuclear Regulatory Commission 

• Intelligence Community 

• Office of Science and Technology 

Policy 

• U.S. Postal Service 

• Information Sharing and Analysis 

Center Council 

• Partnership for Critical 

Infrastructure Security 

• State, Local, Tribal, and Territorial 

Government Coordinating Council
CRITICAL INFRASTRUCTURE AND KEY RESOURCES

Page 48 National Response Framework: Overview January 2008

CONCEPT OF OPERATIONS OVERVIEW

The annex describes specific organizational approaches, processes, coordinating 

structures, and incident-related actions required for the protection and restoration of 

CIKR assets, systems, networks, or functions within the impacted area and outside the 

impacted area at the local, regional, and national levels. 

The processes described herein are detailed further in standard operating procedures, 

field guides, and other related guidance developed collaboratively by DHS and the 

cooperating agencies to this annex. 

DHS is responsible for leading, integrating, and coordinating the overall national effort to 

enhance CIKR protection, including developing and implementing comprehensive, 

multitiered risk management programs and methodologies; developing cross-sector and 

cross-jurisdictional protection guidance and protocols; and recommending risk 

management and performance criteria and metrics within and across sectors. 

Federal departments and agencies provide support consistent with their CIKR-related 

statutory or regulatory responsibilities or with their designated functions as SectorSpecific Agencies (SSAs), Emergency Support Function (ESF) primary or supporting 

agencies, or coordinating or cooperating agencies for other related National Response 

Framework Support or Incident Annexes. 

SSAs focus on overarching CIKR protection, risk management, and information sharing 

by working collaboratively with Sector Coordinating Councils (SCCs), Government 

Coordinating Councils (GCCs), relevant Federal departments and agencies, State, local, 

and tribal governments, ESFs, CIKR owners and operators, sector-based informationsharing mechanisms, and other private-sector entities. 

SSAs coordinate CIKR efforts within their sectors to deter threats, mitigate 

vulnerabilities, and minimize consequences of manmade and natural incidents. SectorSpecific Plans (SSPs) specify each sector’s approach to the risk management and 

information-sharing components of incident management. 

State, tribal, and local government entities establish security partnerships, facilitate 

information sharing, and enable planning and preparedness for CIKR protection within 

their jurisdictions. Tribal governments are responsible for public health, welfare, safety, 

CIKR protection, and continuity of essential services within their jurisdictions. Local 

governments usually are responsible for emergency services and first-level responses to 

CIKR incidents. In some sectors, local governments own and operate CIKR such as 

water, wastewater, and storm water systems and electric utilities, and are responsible 

for initial prevention, response, recovery, and emergency services provision. 

Private-sector CIKR owners and operators are responsible at the corporate and 

individual facility levels for risk and incident management planning, security, and 

preparedness investments. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center, www.fema.gov/NRF. 
FINANCIAL MANAGEMENT

January 2008 National Response Framework: Overview Page 49

PURPOSE

The Financial Management Support Annex provides basic financial management 

guidance for all participants in National Response Framework (NRF) activities. This 

includes guidance for all Federal departments and agencies providing assistance for 

incidents requiring a coordinated Federal response. The financial management function 

is a component of Emergency Support Function (ESF) #5 – Emergency Management. 

The processes and procedures described in this annex ensure that funds are provided 

expeditiously and that financial operations are conducted in accordance with established 

Federal law, policies, regulations, and standards. 

SCOPE

As part of the Secretary of Homeland Security’s responsibility to coordinate resources 

under Homeland Security Presidential Directive (HSPD) 5, this annex is applicable to 

Federal departments and agencies (“Federal agencies”) participating and responding 

under the National Response Framework with assistance or relief as coordinated by the 

Department of Homeland Security (DHS)/Federal Emergency Management Agency 

(FEMA) in response to incidents requiring a coordinated Federal response. 

MEMBERS

Coordinating Agencies: 

Department of Homeland Security (DHS)/Federal Emergency Management Agency 

(FEMA) (Stafford Act declarations) 

Federal agency requesting Federal-to-Federal support (non-Stafford Act declarations) 

Cooperating Agencies: All

CONCEPT OF OPERATIONS OVERVIEW

Stafford Act Declarations 

The President may direct any Federal agency pursuant to the authorities in sections 402, 

403, and 502 of the Stafford Act. 

The Disaster Relief Fund (DRF), appropriated to DHS/FEMA, is available for purposes of 

the Stafford Act. Reimbursement may be provided from the DRF for activities conducted 

pursuant to these sections. 

The DRF is not available for activities not authorized by the Stafford Act, for activities 

undertaken under other authorities or agency missions, or for non-Stafford incidents 

requiring a coordinated Federal response. 

DHS/FEMA may issue mission assignments to other Federal agencies to: 1) address a 

State's request for Federal assistance to meet unmet emergency needs; or 2) support 

overall Federal operations pursuant to, or in anticipation of, a Stafford Act declaration. 

The mission assignment is issued to an agency by using FEMA Form 90-129, Mission 

Assignment with, as applicable, funding, funding limitations, the requirements of the 

task(s) to be performed, completion date, and State cost-share requirements. 
FINANCIAL MANAGEMENT

Page 50 National Response Framework: Overview January 2008

Non-Stafford Act Incidents 

A Federal entity with primary responsibility and statutory authority for handling an 

incident (i.e., the requesting agency) that needs support or assistance beyond its normal 

operations may request DHS coordination and facilitation through the NRF. 

Generally, the requesting agency provides funding for the incident consistent with 

provisions of the Economy Act, unless other statutory authorities exist. 

Federal agencies participating in the NRF may request and provide Federal-to-Federal 

support by executing inter/intra-agency reimbursable agreements, in accordance with 

applicable authorities. Federal agencies providing mutual aid support may request 

reimbursement from the requesting agency for eligible expenditures. The Request for 

Federal-to-Federal Support form (see Attachment 3, Tab 1 of the annex) may be used as 

the Reimbursement Agreement form by Federal agencies requesting support. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center, www.fema.gov/NRF. 
INTERNATIONAL COORDINATION

January 2008 National Response Framework: Overview Page 51

PURPOSE

The International Coordination Support Annex provides guidance on carrying out 

responsibilities for international coordination in support of the Federal Government’s 

response to a domestic incident with an international component. 

SCOPE

The International Coordination Support Annex supplements the National Response 

Framework (NRF). The role of the Department of State (DOS) within the NRF is to fully 

support Federal, State, tribal, and local authorities in effective incident management and 

preparedness planning. A domestic incident will have international and diplomatic 

impacts and implications that call for coordination and consultations with foreign 

governments and international organizations. An incident may also require direct 

bilateral and multilateral actions on foreign affairs issues related to the incident, for 

which DOS has independent and sole responsibility. 

MEMBERS

Coordinating Agency: Department of State 

Cooperating Agencies:

• Department of Agriculture 

• Department of Commerce 

• Department of Defense 

• Department of Energy 

• Department of Health and Human Services 

• Department of Homeland Security 

• Department of Justice 

• Department of Transportation 

• U.S. Agency for International Development 

• Other Federal Agencies 

• American Red Cross 

CONCEPT OF OPERATIONS OVERVIEW

Actions in this annex fall into two main categories: domestic coordination and foreign 

coordination. 

Domestic Coordination

• Domestic Support and International Outreach. DOS’s Executive Secretariat and 

its Operations Center establish a DOS Task Force when domestic incidents have 

major international implications. 

• Domestic DOS Facilities/Personnel. DOS coordinates with other Federal, State, 

tribal, or local authorities to respond to events at DOS domestic facilities and ensures 

the safety and security of DOS personnel. 
INTERNATIONAL COORDINATION

Page 52 National Response Framework: Overview January 2008

• Support to Foreign Missions/Foreign Nationals in the United States. 

• Ensures (along with Federal, State, tribal, and local authorities) the protection of 

foreign missions, the U.N., and other multilateral organizations with missions in 

the United States, and for the safety/security of their official personnel. 

• Assists foreign Embassies/Consulates in coordinating with Federal, State, tribal, 

and local authorities to enable foreign diplomatic missions to provide information 

to their citizens in the United States and to render safety/security and other 

consular assistance. 

Foreign Coordination

• Immediate U.S. Government Incident Management – Operational Needs. 

DOS coordinates U.S. Government communications with other nations, through 

Embassies/Consulates, regarding crisis response and other activities. 

• Provision of Information to Americans Abroad, Foreign Governments, and 

the International Community. 

• Advises American citizens and businesses and other U.S. social/economic entities 

abroad of the nature and extent of the situation in the United States and any 

direct effect that the domestic incident might have on their safety and security. 

• Serves as a liaison between foreign governments and U.S. agencies on real-time 

actions taken or planned, and coordinates U.S. Government projections of longer 

term international consequences of the event. 

• Develops and implements a diplomatic and international public affairs and public 

diplomacy strategy in coordination with the National Response Coordination 

Center to communicate information concerning the status of the incident and 

highlight U.S. and international response and mitigation efforts. 

DOS as Intermediary for Requests/Offers of Assistance 

• Coordinates requests for foreign assistance based on needs conveyed by DHS or 

other Federal agencies. 

• Acts as the formal diplomatic mechanism for handling U.S. Government requests 

to other nations for assistance in meeting additional, ongoing U.S. response 

needs. 

• Acts as the intermediary for foreign offers of assistance to the U.S. Government. 

Works with U.S. Government departments and agencies to respond appropriately 

to such requests. 

NOTE: The International Assistance System (IAS) Concept of Operations details the 

procedures for conveying information on needs to the international community, 

requesting foreign assistance, and reviewing offers of foreign assistance. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center, www.fema.gov/NRF.
PRIVATE-SECTOR COORDINATION

January 2008 National Response Framework: Overview Page 53

PURPOSE

The Private-Sector Coordination Support Annex describes the policies, responsibilities, 

and concept of operations for Federal incident management activities involving the 

private sector during incidents requiring a coordinated Federal response. In this 

context, the annex further describes the activities necessary to ensure effective 

coordination and integration with the private sector, both for-profit and not-for-profit, 

including the Nation’s critical infrastructure, key resources, other business and industry 

components, and not-for-profit organizations (sometimes called nongovernmental 

organizations (NGOs)), including those serving special needs populations, engaged in 

response and recovery. The Critical Infrastructure and Key Resources (CIKR) Support 

Annex focuses on the CIKR efforts of the private sector while this annex focuses on the 

remaining portion of the private sector. 

SCOPE

This annex applies to all Federal executive agencies operating under the National 

Response Framework (NRF) in incidents requiring a coordinated Federal response that 

involve the private sector in any of the following ways: 

• Impacted organization or infrastructure 

• Response resource 

• Regulated and/or responsible party 

• Member of the State emergency management organization 

MEMBERS

Coordinating Agency: Department of Homeland Security (DHS) 

Cooperating Agencies: All

CONCEPT OF OPERATIONS OVERVIEW

Department of Homeland Security: In the event of a potential or actual incident, the 

DHS Office of the Secretary coordinates strategic communications with CEOs, senior 

officials, or individuals specifically designated by these private-sector leaders to engage 

in such communications on their behalf. 

Further, the Secretary of Homeland Security utilizes a private-sector advisory group with 

representatives from across the spectrum of CIKR, business, and industry, as well as 

not-for-profit organizations, to provide advice on incident management and emergency 

response issues affecting their constituencies. 

Private Sector Office (DHS/PSO): The DHS/PSO encourages private-sector 

preparedness for incident management by: 

• Identifying and promoting security and preparedness activities in national 

preparedness, prevention, response, and recovery. 

• Promoting educational efforts to prepare for natural disasters or terrorist incidents. 

• Encouraging the identification and sharing of best practices through promoting use of 

consensus standards and best practices. 
PRIVATE-SECTOR COORDINATION

Page 54 National Response Framework: Overview January 2008

DHS/PSO provides representatives to the National Operations Center (NOC) components 

as required, and to the Joint Field Office (JFO) to enable strategic coordination with the 

private sector during incidents requiring a coordinated Federal response. 

Office of Infrastructure Protection (DHS/OIP): DHS/OIP supports prevention, 

preparedness, response, and recovery efforts involving CIKR, in accordance with 

Homeland Security Presidential Directive 7, Critical Infrastructure, Identification, 

Prioritization, and Protection (HSPD-7), and other private-sector entities as appropriate, 

through facilitating and coordinating protection and response planning, procedures, and 

exercises. DHS/OIP implements the programmatic policy and strategy for information 

sharing. 

National Infrastructure Coordinating Center (NICC): The NICC monitors the 

Nation’s CIKR on a 24/7 basis and provides a mechanism and process to share and 

exchange information with the private sector and the HSPD-7 SSAs. 

Sector-Specific Agencies (SSA): SSAs, as designated in HSPD-7, focus on 

overarching CIKR protection, risk management, and information sharing by working 

collaboratively with relevant Federal departments and agencies; State, tribal, and local 

governments; CIKR owners and operators; and other private-sector entities. 

Private-sector for-profit and not-for-profit organizations: These groups, like 

Federal, State, tribal, and local governmental organizations, report threats, incidents, 

and potential incidents to the NOC using existing jurisdictional incident reporting 

mechanisms and reporting channels. The NOC receives threat and operational 

information regarding incidents or potential incidents from these organizations and 

jurisdictions and makes an initial determination to initiate the coordination of Federal 

incident management activities. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center, www.fema.gov/NRF. 
PUBLIC AFFAIRS

January 2008 National Response Framework: Overview Page 55

PURPOSE

The Public Affairs Support Annex describes the interagency policies and procedures used 

to rapidly mobilize Federal assets to prepare and deliver coordinated and sustained 

messages to the public in response to incidents requiring a coordinated Federal 

response. 

SCOPE

As part of the Secretary of Homeland Security's responsibility to coordinate incident 

management under Homeland Security Presidential Directive 5, the National Response 

Framework (NRF) Incident Communications Emergency Policy and Procedures (ICEPP) 

provides detailed guidance to Federal incident communicators on activities to be initiated 

in conjunction with incidents requiring a coordinated Federal response. It is applicable 

to all Federal departments and agencies responding under the NRF. It establishes 

mechanisms to prepare and deliver coordinated and sustained messages regarding 

incidents requiring a coordinated Federal response, and provides for prompt Federal 

acknowledgement of an incident and communication of emergency information to the 

public during incident management operations. 

The ICEPP is comprised of two annexes contained in the NRF: 

• Public Affairs Support Annex: Describes the interagency policies and procedures for 

incident communications with the public. 

• ESF #15 – External Affairs Annex: Outlines the functions, resources, and capabilities 

for external affairs. 

Additionally, the ESF #15 Standard Operating Procedures (SOP) exist within the 

parameters established by the NRF. The SOP establishes specific procedures and 

protocols for ESF #15 to support Federal domestic incident management during an 

incident requiring a coordinated Federal response. 

The policies outlined in all of these documents are based on, and flow through, the NRF, 

the National Incident Management System (NIMS), and the ESF #15 SOP, which further 

outlines the guidance, protocols, and tactics of the Joint Information System (JIS), the 

Incident Command System (ICS), and Federal external affairs actions. All of these 

elements are integrated with and supported through the ESF #15 resource management 

structure. 

MEMBERS

Coordinating Agency: Department of Homeland Security (DHS) 

Cooperating Agencies: All
PUBLIC AFFAIRS

Page 56 National Response Framework: Overview January 2008

CONCEPT OF OPERATIONS OVERVIEW

During an incident, Federal, State, tribal, and local authorities share responsibility for 

communicating information regarding the incident to the public. These actions are a 

critical component of incident management and must be fully integrated with all other 

operational actions to ensure the following objectives are met: 

• Delivery of incident preparedness, health, response, and recovery instructions to 

those directly affected by the incident. 

• Dissemination of incident information to the public, including special needs 

populations. 

The Joint Information Center (JIC) structure provides a supporting mechanism to 

develop, coordinate, and deliver messages. It supports the Incident Commander or 

Unified Command and the associated elements of the ICS. 

A Federal core group develops, coordinates, and delivers information and instructions to 

the public related to: 

• Federal assistance to the incident-affected area. 

• Federal departmental/agency response. 

• National preparations. 

• Protective measures. 

• Impact on nonaffected areas. 

• Federal law enforcement activities. 

Assignments to this core group are determined by the DHS Office of Public Affairs (OPA) 

in accordance with jurisdictional and statutory responsibilities, operational tasks, areas 

of expertise and responsibility, and the nature and location of the incident. 

The DHS OPA has primary responsibility for coordinating the Federal incident 

communications effort by: 

• Providing a leadership role during domestic incidents when significant interagency 

coordination is required. 

• Identifying Federal department and interagency participants, and arranging 

conference calls and other activities necessary for ESF #15 coordination. 

• Establishing a strategic communications flow during an incident requiring a 

coordinated Federal response. 

• Designating an ESF #15 team comprised of external affairs officials from various 

Federal Government departments and agencies. 

• Providing coordination with the Homeland Security Council (HSC) and other entities 

within the Executive Office of the President on matters related to dissemination of 

incident-related information to the public. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center, www.fema.gov/NRF. 
TRIBAL RELATIONS

January 2008 National Response Framework: Overview Page 57

PURPOSE

The Tribal Relations Support Annex describes the policies, responsibilities, and concept 

of operations for effective coordination and interaction of Federal incident management 

activities with those of tribal governments and communities during incidents requiring a 

coordinated Federal response. The processes and functions described in this annex help 

facilitate the delivery of incident management programs, resources, and support to tribal 

governments and individuals. 

SCOPE

This annex applies to all Federal departments and agencies working under the National 

Response Framework (NRF) in response to incidents requiring Federal coordination, 

including tribes recognized by the Federal Government. 

Because tribal governments are fully integrated into the NRF, this annex addresses only 

those factors in the relationship between Federal departments and agencies and the 

federally recognized tribes. 

The guidance provided in this annex does not contravene existing laws governing 

Federal relationships with federally recognized tribes. 

MEMBERS

Coordinating Agency: Department of Homeland Security (DHS) 

Cooperating Agencies: 

• Department of Agriculture 

• Department of Health and Human Services 

• Department of the Interior 

• All Others 

CONCEPT OF OPERATIONS OVERVIEW

State Governors must request a Presidential disaster declaration on behalf of a tribe 

under the Stafford Act. However, Federal departments and agencies can work directly 

with tribes within existing agency authorities and resources in the absence of such a 

declaration. 

Tribal relations functions, resources, and liaison operations are coordinated through 

Emergency Support Function (ESF) #15 – External Affairs. 

A Tribal Relations Element is established in the Joint Field Office (JFO) to provide the 

operational capability for collecting and sharing relevant incident information, alerting 

and deploying required tribal relations staff to or near the affected area, and ensuring 

compliance with Federal laws relating to tribal relations. 

For incidents that directly impact tribal jurisdictions, a tribal representative shall be 

included in the Unified Coordination Group, as required. 
TRIBAL RELATIONS

Page 58 National Response Framework: Overview January 2008

A tribe may appoint a member of the tribe to serve as a tribal liaison in the JFO. As 

authorized by the tribal government, the tribal liaison: 

• Is responsible for coordinating tribal resources needed to prevent, respond to, and 

recover from incidents of all types. This also includes preparedness and mitigation 

activities. 

• May have powers to amend or suspend certain tribal laws or ordinances associated 

with response. 

• Communicates with the tribal community and helps people, businesses, and 

organizations cope with the consequences of any type of incident. 

• Negotiates mutual aid and assistance agreements with other tribes or jurisdictions. 

• Can request Federal assistance under the Stafford Act through the Governor of the 

State when it becomes clear that the tribe’s capabilities will be insufficient or have 

been exceeded. 

• Elect to deal directly with the Federal Government. Although a State Governor must 

request a Presidential disaster declaration on behalf of a tribe under the Stafford Act, 

Federal departments or agencies can work directly with the tribe within existing 

authorities and resources. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center, www.fema.gov/NRF. 
VOLUNTEER AND DONATIONS MANAGEMENT

January 2008 National Response Framework: Overview Page 59

 

PURPOSE

The Volunteer and Donations Management Support Annex describes the coordination 

processes used to support the State in ensuring the most efficient and effective use of 

unaffiliated volunteers, unaffiliated organizations, and unsolicited donated goods to 

support all Emergency Support Functions (ESFs) for incidents requiring a Federal 

response, including offers of unaffiliated volunteer services and unsolicited donations to 

the Federal Government. 

SCOPE

This annex provides guidance on the Federal role in supporting State governments in the 

management of masses of unaffiliated volunteers and unsolicited donated goods. (Any 

reference to volunteer services and donated goods in this annex refers to unaffiliated 

volunteer services4 and unsolicited goods, unless otherwise stated.) This guidance 

applies to all agencies and organizations with direct and indirect volunteer and/or 

donations responsibilities under the National Response Framework. 

MEMBERS

ESF Coordinator: Department of Homeland Security (DHS)/Federal Emergency 

Management Agency (FEMA) 

Cooperating Agencies: 

• Department of Agriculture 

• Department of Health and Human Services 

• Department of Homeland Security 

• Department of State 

• Department of Transportation 

• Corporation for National and Community Service 

• General Services Administration 

• U.S. Agency for International Development 

• USA Freedom Corps 

• National Voluntary Organizations Active in Disaster 

4

 Unaffiliated volunteers, also known as spontaneous volunteers, are individuals who offer to help or self-deploy to 

assist in emergency situations without fully coordinating their activities. They are considered “unaffiliated” in that 

they are not part of a disaster relief organization. Although unaffiliated volunteers can be significant resources, 

because they do not have preestablished relationships with emergency response organizations, verifying their 

training or credentials and matching them with the appropriate service areas can be difficult. 
VOLUNTEER AND DONATIONS MANAGEMENT

Page 60 National Response Framework: Overview January 2008

CONCEPT OF OPERATIONS OVERVIEW

The Federal Government supports State and tribal government efforts to manage 

unaffiliated volunteers and unsolicited donated goods. Requests for support under this 

annex from Federal, State, tribal, and local authorities generally are coordinated through 

the Regional Response Coordination Center (RRCC) or the Joint Field Office (JFO). 

Depending on the situation, however, coordination may occur at the National Response 

Coordination Center (NRCC). DHS/FEMA provides Volunteer and Donations Management 

staff to the NRCC, RRCC, and JFO in support of the State, as required. 

Federal support of volunteer and donations management operations may include: 

• Activation of a Volunteer/Donations Coordination Team at DHS/FEMA Headquarters 

to expedite service provided to donors from large private-sector entities, large civic 

organizations, and others, and to address large national media-driven collection 

drives and other complex situations involving donated goods and volunteer services. 

• At the request of the State or tribal government, a national donations and volunteer 

management Web-based application that enables the general public to register their 

offers of donated goods and services, thus providing the State/tribal 

Volunteer/Donations Coordination Team a real-time view of offers and the ability to 

match offers to needs. 

• Coordination with appropriate DHS/FEMA Divisions/Offices, the Corporation for 

National and Community Service (CNCS), National Voluntary Organizations Active in 

Disaster (National VOAD) leadership, the Points of Light & Hands On Network 

leadership and their Volunteer Centers, State VOAD leadership, and other 

stakeholders as necessary. 

• Facilities management such as multiagency warehouse and volunteer reception 

center capabilities. 

• Communications support such as coordination of a national hotline and/or call center. 

The CNCS supports utilization of volunteers who are not part of the preexisting Federal, 

State, tribal, and/or local emergency management structure. 

National VOAD supports the management of unsolicited donations including efforts to 

maximize the utility of unsolicited donations, public information campaigns, and disposition 

of unneeded goods. 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center, www.fema.gov/NRF. 
WORKER SAFETY AND HEALTH

January 2008 National Response Framework: Overview Page 61

PURPOSE

The Worker Safety and Health Support Annex provides Federal support to Federal, 

State, tribal, and local response and recovery worker safety and health during incidents 

requiring a coordinated Federal response. The annex, coordinated by the Department of 

Labor (DOL)/Occupational Safety and Health Administration (OSHA), describes the 

technical assistance resources, capabilities, and other support to ensure that response 

and recovery worker safety and health risks are anticipated, recognized, evaluated, 

communicated, and consistently controlled. 

SCOPE

This annex describes the technical assistance resources, capabilities, and other support 

to ensure that response and recovery worker safety and health risks are anticipated, 

recognized, evaluated, communicated, and consistently controlled. This annex 

addresses the coordination and provision of technical assistance for worker safety and 

health management activities; it does not address public health and safety. It also 

describes coordination mechanisms, policies, and processes to provide technical 

assistance for incident response and recovery worker safety and health management 

activities that include anticipation, identification, and mitigation of incident response and 

recovery of risks and hazards. 

This annex is structured to provide technical assistance and support for response and 

recovery worker safety and health in the changing requirements of domestic incident 

management to include preparedness, prevention, response, and recovery actions. 

Activities within the scope of this function include development of health and safety 

plans; identifying, assessing, and controlling health and safety hazards; conducting 

response and recovery exposure monitoring; collecting and managing data; providing 

technical assistance and support for personal protective equipment programs, incidentspecific response and recovery worker training, and medical surveillance; providing 

exposure and risk management information; and providing technical assistance to 

include industrial hygiene expertise, occupational safety and health expertise, 

engineering expertise, and occupational medicine expertise. 

MEMBERS

Coordinating Agency: Department of Labor (DOL)/Occupational Safety and Health 

Administration (OSHA) 

Cooperating Agencies: 

• Department of Defense 

• Department of Energy 

• Department of Health and Human Services 

• Department of Homeland Security 

• Environmental Protection Agency 
WORKER SAFETY AND HEALTH

Page 62 National Response Framework: Overview January 2008

CONCEPT OF OPERATIONS OVERVIEW

When implemented, this annex will coordinate with Federal, State, tribal, local, and if 

necessary, private-sector officials to determine potential needs for worker safety and 

health support. 

At the Federal Headquarters-level, this annex operates under the direction and 

leadership of the Assistant Secretary for Occupational Safety and Health. 

The DOL/OSHA Regional Administrator provides staff to coordinate the provision of 

support activities for this annex at the Regional Response Coordination Center (RRCC) 

and the Joint Field Office (JFO). Within the JFO, the Department of Homeland Security 

(DHS)/Federal Emergency Management Agency (FEMA) Disaster Safety Officer (DSO) 

ensures that the Federal Coordinating Officer (FCO) receives accurate and timely safety 

and health information and technical assistance to ensure the safety of the FEMA staff 

and personnel in the JFO and other FEMA-managed facilities. 

The coordinator for this annex ensures the FCO, the Unified Coordination Group, and the 

Chief of Staff have consistent, accurate, and timely worker safety and health information 

for theatre-wide operations, and coordinates the delivery of Federal worker safety and 

health technical assistance and resources to Federal, State, tribal, and local responders. 

The coordinator for this annex convenes and chairs the JFO’s Interagency Safety and 

Health Committee. This committee is made up of representatives from the various 

agencies (including Federal, State, tribal, and local response organizations) within the 

JFO and coordinates the worker safety and health program among the various agencies. 

When activated, both the FEMA DSO and the coordinator for this annex make up the 

safety function on the JFO Coordination Staff. Further, when implemented, this annex 

will be represented within the Operations and Planning Sections of the JFO. Additionally, 

staff of this annex may serve as technical specialists in other JFO elements as required. 

The support provided through the Worker Safety and Health Support Annex will be 

dependent upon the scope, complexity, and specific hazards associated with the incident 

and the needs of the response and recovery organizations. Specific requests for 

assistance will be coordinated by DHS/FEMA and defined in mission assignments. 

The following describes general functional support that can be provided under this 

annex: 

• Worker Safety and Health Needs Assessment 

• Health and Safety Plans 

• Safety and Health Assessment 

• Personal Protective Equipment 

• Data Management 

• Training and Communication 

• Response and Recovery Worker Health and Medical Surveillance 

To see the complete annex, as well as other pertinent information, refer to the 

NRF Resource Center, www.fema.gov/NRF.