State and Local Guide (SLG) 101

Guide for All-Hazard Emergency Operations 

Planning

September 1996

FOREWORD

One goal of the Federal Emergency Management Agency (FEMA) is to develop, in partnership with 

State and local governments, a national emergency management system that is comprehensive, riskbased, and all-hazard in approach.

Crucial to this system are emergency operations plans (EOP), which describe who will do what, as well 

as when, with what resources, and by what authority--before, during, and immediately after an

emergency.

This State and Local Guide (SLG) provides emergency managers and other emergency services

personnel with information on FEMA's concept for developing risk-based, all-hazard emergency 

operations plans.

This Guide clarifies the preparedness, response, and short-term recovery planning elements that warrant 

inclusion in State and local EOPs. It offers FEMA's best judgment and recommendations on how to 

deal with the entire planning process--from forming a planning team to writing the plan. It also 

encourages emergency managers to address all of the hazards that threaten their jurisdiction in a single 

EOP instead of relying on stand-alone plans.

This Guide should help State and local emergency management organizations produce EOPs that:

• serve as the basis for effective response to any hazard that threatens the jurisdiction;

• facilitate integration of mitigation into response and recovery activities; and

• facilitate coordination with the Federal Government during catastrophic disaster

situations that necessitate implementation of the Federal Response Plan (FRP). 

Emergency planners in the business and industry and animal care communities may find portions of this 

Guide useful in the development of their emergency response plans. Industry planners may also consult 

FEMA-141, Emergency Management Guide for Business and Industry. 

FEMA welcomes recommendations on how this Guide can be improved to better serve the needs of 

the emergency management community. Comments should be addressed to FEMA, Attn:

Preparedness, Training, and Exercises Directorate, State and Local Preparedness Division,

Washington, DC 20472.

 

Kay C. Goss

Associate Director for Preparedness, 
 Training, and Exercises 
page ii

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

BLANK PAGE
page iii

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

About This Document

Purpose This Guide is meant to aid State and local emergency managers (also called 

"emergency management coordinators") in their efforts to develop and maintain 

a viable all-hazard emergency operations plan. The Guide is a "toolbox" of 

ideas and advice, not a sample EOP. Each community's EOP must reflect 

what that community will do to protect itself from its hazards with the 

resources it has or can obtain.

 

Applicability 

and Scope

This Guide is intended primarily for use by personnel responsible for EOP 

development and maintenance in State and local emergency management

agencies. It is strictly a guide. It establishes no requirements, and its 

recommendations may be used, adapted, or disregarded. 

Supersession This SLG is new. It replaces Civil Preparedness Guide (CPG) 1-8, Guide for 

the Development of State and Local Emergency Operations Plans (dated 

September 10, 1990); CPG 1-8A, Guide for the Review of State and Local 

Emergency Operations Plans, (dated October 1992); and CPG 1-10, Guide 

for the Development of a State and Local Continuity of Government 

Capability (dated July 27, 1987), which have been rescinded.

Authorities This SLG is issued under authority of the Robert T. Stafford Disaster Relief 

and Emergency Assistance Act, as amended. In this law, Congress

recognizes emergency management as a joint responsibility of Federal, State, 

and local government. For the Federal Government, Congress defines a role 

that includes providing "necessary direction, coordination, and guidance" (Sec. 

601) for the Nation's emergency management system, to include "technical

assistance to the States in developing comprehensive plans and programs for 

preparation against disasters" (para. 201(b)). 

Local governments should use this Guide to supplement guidance from their 

States.

 

Overview of 

Contents

Chapter 1 explains what an EOP is at the State and local levels, why the EOP is 

a necessary part of a comprehensive approach to emergency management, and 

how the EOP relates to other aspects of the comprehensive, risk-based, allhazard approach. 
page iv

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Chapter 2 describes the approach FEMA recommends for a step-by-step 

process of risk-based, all-hazard emergency operations planning. Chapter 3 

suggests how to format the results of the planning process in a written EOP.

Chapters 4 and 5 list and discuss elements that, if applicable for a jurisdiction, 

should be addressed in its all-hazard EOP. 

Chapter 6 notes unique aspects of certain hazards, including associated

regulatory requirements. It suggests how to address these unique aspects in the 

all-hazard EOP rather than in stand-alone plans. The chapter is not meant to 

replace hazard-specific planning guidance issued by the Radiological Emergency 

Preparedness (REP) Program of FEMA and the Nuclear Regulatory

Commission (NRC), the Chemical Stockpile Emergency Preparedness

Program (CSEPP), or the National Response Team (NRT). 

Chapter 7 contains information on integrating State EOPs with the Federal 

Response Plan, so that all levels of government can provide a coordinated 

response to communities in need. 

Please note that, unlike previous FEMA planning guidance, this Guide

addresses animal care and control and gives extensive treatment to resource 

management (including donations management).

Revision

Process

To be relevant, FEMA's planning guidance had to reflect three basic changes: 

(1) Congress eliminated emphasis on the nuclear attack hazard and restated 

Federal Civil Defense Act authorities in the Stafford Act; (2) FEMA and the 

Federal Government have acquired a broader role in disaster response; and (3) 

emergency management planning in the States and many localities has matured 

beyond the sample plans FEMA provided in earlier planning guidance. Also, 

FEMA has taken a new approach to dealing with the States: Performance 

Partnership Agreements (PPA). With Performance Partnership Agreements, 

FEMA trades increased flexibility "up front" for increased attention to results. 

This Guide fits the new way of doing business.

In July 1995, FEMA convened a group of local, State, and Regional planners 

to offer suggestions on making all-hazard EOP guidance more useful given

"conditions in the field." This Guide reflects many of their ideas. 

FEMA will revise this SLG as needed. Change pages will be issued through the 
page iv

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

FEMA publication distribution system to organizations designated to receive this 

Guide. Other holders of this document should contact their State or local

emergency management organization or the FEMA Printing and Publications 

Branch to get a copy of the change(s) or more copies of the Guide.
page v

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Table of Contents 

Page

Foreword ................................................................................................................................i

About this Document

Purpose .......................................................................................................................iii

Applicability and Scope................................................................................................iii

Supersession................................................................................................................iii

Authorities...................................................................................................................iii

Overview of Contents..................................................................................................iii

Revision Process..........................................................................................................iv

List of Figures and Tables.........................................................................................................ix

Chapter 1 - Preliminary Considerations

What an EOP is...........................................................................................................1-1

General

Local EOPs

State EOPs

Why Your Jurisdiction Should Have an EOP ................................................................1-2

Government's Responsibility for Emergency Management

Comprehensive Emergency Management

Criticality of All-Hazard EOPs

What an EOP is Not....................................................................................................1-5

Other Types of Plans

Plans Versus Procedures

Chapter 2 - The Planning Process

Introduction.................................................................................................................2-1

Principles.....................................................................................................................2-1

Don't Reinvent the Wheel

Don't Go It Alone

Don't Forget the Chief Executive Official (“CEO”)

Steps...........................................................................................................................2-4

Research
page v

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Development

Validation

Maintenance

Page

Chapter 3 - Emergency Operations Plan Format

Introduction.................................................................................................................3-1

A Functional Approach to the Overall Structure of the EOP..........................................3-2

Concept

Components

Options

A Task-Based Approach to Each Section of the EOP ..................................................3-3

Concept

Components

Options

Chapter 4 - Basic Plan Content

Introduction.................................................................................................................4-1

Elements of the Basic Plan............................................................................................4-1

Introductory Material

Purpose

Situation and Assumptions

Concept of Operations

Organization and Assignment of Responsibilities

Administration and Logistics

Plan Development and Maintenance

Authorities and References

Chapter 5 - Functional Annex Content

Content........................................................................................................................5-1

Functions To Include as Annexes..................................................................................5-1

Description of Core Functions.....................................................................................5-2

Attachment A - Direction and Control..............................................................5-A-1

Attachment B - Communications ......................................................................5-B-1

Attachment C - Warning ..................................................................................5-C-1 

Attachment D - Emergency Public Information..................................................5-D-1 
page vi

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Table of Contents

Attachment E - Evacuation...............................................................................5-E-1

Attachment F - Mass Care...............................................................................5-F-1

Attachment G - Health and Medical..................................................................5-G-1

Attachment H - Resource Management ............................................................5-H-1

Page

Chapter 6 - Hazard-Unique Planning Considerations

Introduction.................................................................................................................6-1

Development of a Hazard-Specific Appendix................................................................6-1

Content of A Hazard-Specific Appendix.......................................................................6-2

Description of Unique and Regulatory Planning Considerations......................................6-3

Attachment A - Earthquake..............................................................................6-A-1

Attachment B - Flood/Dam Failure...................................................................6-B-1

Attachment C - Hazardous Materials................................................................6-C-1

Attachment D - Hurricane ................................................................................6-D-1

Attachment E - Lethal Unitary Chemical Agents and Munitions..........................6-E-1

Attachment F - Radiological Hazards................................................................6-F-1

Attachment G - Terrorism........to be developed ..............................................6-G-1

Attachment H - Tornado..................................................................................6-H-1

Chapter 7 - Linking Federal and State Emergency Response Operations

Introduction.................................................................................................................7-1

Relationship - Federal (National and Regional) Response Plans and the State EOP........7-1

Glossary of Terms....................................................................................................................GLO-1

List of Acronyms......................................................................................................................ACR-1

Bibliography.............................................................................................................................BIB-1
page viii

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

BLANK PAGE
page ix

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

List of Figures and Tables

Page

Table 4-1: Organizational Responsibilities for Response Functions......................................4-5

Figure 5-D-1: Possible Components of an EPI Organization....................................................5-D-11

Figure 5-H-1: Possible Components of a Resource Management Organization........................5-H-10

Table 6-1: Typical Content of Hazard-Specific Appendices to Core Functional Annexes....6-3

Table 6-D-1: Generic Damage Characteristics of Hurricanes..................................................6-D-9

Figure 7-1: Emergency Response Coordinating Roles in Large-Scale Disasters...................7-2

Table 7-1: Functional Relationships...................................................................................7-8
page x

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

BLANK PAGE
SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page 1-1

Chapter 1

Preliminary Considerations

What an EOP Is

General A jurisdiction's emergency operations plan is a document that:

ÿ Assigns responsibility to organizations and individuals for carrying out 

specific actions at projected times and places in an emergency that 

exceeds the capability or routine responsibility of any one agency, e.g., 

the fire department.

ÿ Sets forth lines of authority and organizational relationships, and shows 

how all actions will be coordinated.

ÿ Describes how people and property will be protected in emergencies 

and disasters.

ÿ Identifies personnel, equipment, facilities, supplies, and other resources 

available--within the jurisdiction or by agreement with other

jurisdictions--for use during response and recovery operations.

ÿ Identifies steps to address mitigation concerns during response and 

recovery activities.

As a public document, an EOP also cites its legal basis, states its objectives, 

and acknowledges assumptions.

Local EOPs In our country's system of emergency management, local government must act 

first to attend to the public’s emergency needs. Depending on the nature and 

size of the emergency, State and Federal assistance may be provided to the 

local jurisdiction. The local EOP focuses on the measures that are essential for 

protecting the public. These include warning, emergency public information, 

evacuation, and shelter.

State EOPs States play three roles: They assist local jurisdictions whose capabilities are 

overwhelmed by an emergency; they themselves respond first to certain
Chapter 1: Preliminary Considerations

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page 1-2

emergencies; and they work with the Federal Government when Federal

assistance is necessary. The State EOP is the framework within which local 

EOPs are created and through which the Federal Government becomes

involved. As such, the State EOP ensures that all levels of government are 

able to mobilize as a unified emergency organization to safeguard the well-being 

of State citizens. The State EOP is of critical importance.

 

Why Your Jurisdiction Should Have an EOP

Government's 

Responsibility 

for Emergency 

Management

When disasters threaten or strike a jurisdiction, people expect elected leaders 

to take immediate action to deal with the problem. The government is expected 

to marshal its resources, channel the efforts of voluntary agencies and private 

enterprise in the community, and solicit assistance from outside of the

jurisdiction if necessary. 

In all States and most localities, that popular expectation is given force by

statute or ordinance. Congress also recognizes State and local emergency

management responsibility in the Robert T. Stafford Disaster Relief and

Emergency Assistance Act, as amended:

ÿ "It is the intent of Congress, by this Act, to provide an orderly and 

continuing means of assistance by the Federal Government to State and 

local governments in carrying out their responsibilities to alleviate the 

suffering and damage which result from [...] disasters (Sec. 101(b), 

emphasis added).

ÿ "The purpose of this title is [...] to vest responsibility for emergency 

preparedness jointly in the Federal Government and the several States 

and their political subdivisions" (Sec. 601).

The elected leadership in each jurisdiction is legally responsible for ensuring that 

 necessary and appropriate actions are taken to protect people and property 

from the consequences of emergencies and disasters.

Comprehensive 

Emergency 

Management

Governments can discharge their emergency management responsibilities by

taking four interrelated actions: mitigation, preparedness, response, and

recovery. A systematic approach is to treat each action as one phase of a 

comprehensive process, with each phase building on the accomplishments of the 

preceding one. The overall goal is to minimize the impact caused by an
Chapter 1: Preliminary Considerations

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page 1-3

emergency in the jurisdiction.

Mitigation Mitigation actions involve lasting, often permanent, reduction of exposure to, 

probability of, or potential loss from hazard events. They tend to focus on 

where and how to build. Examples include: zoning and building code

requirements for rebuilding in high-hazard areas; floodplain buyouts; and

analyses of floodplain and other hazard-related data to determine where it is 

safe to build in normal times, to open shelters in emergencies, or to locate 

temporary housing in the aftermath of a disaster. Mitigation also can involve 

educating businesses and the public on simple measures they can take to reduce 

loss and injury, like fastening bookshelves, water heaters, and file cabinets to 

walls to keep them from falling during earthquakes.

Cost-effective mitigation measures are the key to reducing disaster losses in the 

long term. In hazard-prone areas, mitigation can break the cycle of having to 

rebuild and rebuild again with every recurrence of floods, hurricanes, or

earthquakes. Where there is a willingness to mitigate, opportunities can be 

found. Ongoing efforts might include: educating the private sector about what it 

can do to mitigate at home and at work; reaching out to planning, zoning, and 

development agencies to ensure that hazard conditions are considered in

comprehensive plans, construction permits, building codes, design approvals, 

etc.; and creating inventories of existing structures and their vulnerabilities, to aid 

mitigation planning. There is also a need for planning to take advantage of 

mitigation opportunities in the aftermath of an emergency or disaster, when

hazard awareness is high, funds may become available (with associated

requirements for mitigation), and disruption of the status quo makes it possible 

to rethink design and location of some facilities and infrastructure. Attention to 

mitigation opportunities can make safer communities for us all.

Preparedness While mitigation can make communities safer, it does not eliminate risk and 

vulnerability for all hazards. Therefore, jurisdictions must be ready to face 

emergency threats that have not been mitigated away. Since emergencies often 

evolve rapidly and become too complex for effective improvisation, a

government can successfully discharge its emergency management

responsibilities only by taking certain actions beforehand. This is preparedness.

Preparedness involves establishing authorities and responsibilities for emergency 

actions and garnering the resources to support them: a jurisdiction must assign 
Chapter 1: Preliminary Considerations

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page 1-4

or recruit staff for emergency management duties and designate or procure 

facilities, equipment, and other resources for carrying out assigned duties. This 

investment in emergency management requires upkeep: the staff must receive 

training and the facilities and equipment must be maintained in working order. 

To ensure that the jurisdiction's investment in emergency management 

personnel and resources can be relied upon when needed, there must be a 

program of tests, drills, and exercises. Consideration also must be given to 

reducing or eliminating the vulnerability of the jurisdiction’s emergency 

response organizations and resources to the hazards that threaten the

jurisdiction.

 Accordingly, preparedness measures should not be improvised or handled on 

an ad hoc basis. A key element of preparedness is the development of plans 

that link the many aspects of a jurisdiction's commitment to emergency

management.

Response The onset of an emergency creates a need for time-sensitive actions to save 

lives and property, as well as for action to begin stabilizing the situation so that 

the jurisdiction can regroup. Such response actions include notifying emergency 

management personnel of the crisis, warning and evacuating or sheltering the 

population if possible, keeping the population informed, rescuing individuals and 

providing medical treatment, maintaining the rule of law, assessing damage, 

addressing mitigation issues that arise from response activities, and even

requesting help from outside the jurisdiction.

Recovery Recovery is the effort to restore infrastructure and the social and economic life 

of a community to normal, but it should incorporate mitigation as a goal. For 

the short term, recovery may mean bringing necessary lifeline systems (e.g., 

power, communication, water and sewage, and transportation) up to an

acceptable standard while providing for basic human needs (e.g., food, clothing, 

and shelter) and ensuring that the societal needs of individuals and the

community are met (e.g., maintain the rule of law, provide crisis counseling, 

demonstrate that people do care and that help is becoming available). Once 

some stability is achieved, the jurisdiction can begin recovery efforts for the long 

term, restoring economic activity and rebuilding community facilities and family 

housing with attention to long-term mitigation needs.

Criticality of 

All-Hazard 

The centerpiece of comprehensive emergency management is the EOP. First, 

the EOP defines the scope of preparedness activity necessary to make the 
Chapter 1: Preliminary Considerations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 1-5

EOPs EOP more than a mere paper plan. Training and exercises, in particular, depend 

on an EOP. Training helps emergency response personnel to become familiar 

with their responsibilities and to acquire the skills necessary to perform assigned 

tasks. Exercising provides a means to validate plans, checklists, and response 

procedures and to evaluate the skills of response personnel.

Second, the EOP facilitates response and short-term recovery (which set the 

stage for successful long-term recovery). Response actions are time-sensitive, 

with little allowance for delay or "mid-course corrections,” and some postdisaster mitigation issues such as rebuilding and placement of temporary housing 

facilities also must be addressed quickly. Advance planning makes this easier. 

Finally, an EOP that is flexible enough for use in all emergencies--including 

unforeseen events--provides a community with an emergency management

"bottom line." From there, a community can proceed confidently with long-term 

mitigation efforts directed at specific hazards. Or, it can devote more

resources to risk-based preparedness measures (e.g., specialized training,

equipment, and planning). Whatever the initiative, an all-hazard EOP helps the 

community start from a position of relative security.

What an EOP Is Not 

Those who draft an EOP must understand what it is not. While this chapter has 

called a jurisdiction's EOP--its response plan--the "centerpiece" of its

comprehensive emergency management effort, that does not mean that the EOP 

details all aspects of that effort.

 

Other Types 

of Plans

Emergency management involves several kinds of plans, just as it involves 

several kinds of actions. 

Administrative 

Plans

Administrative plans describe policies and procedures basic to the support of a 

governmental endeavor: typically they deal less with external work products 

than with internal processes. Examples include plans for financial management, 

personnel management, records review, and labor relations activities. Such 

plans are not the direct concern of an EOP. However, if it is assumed that 

provisions of an administrative plan apply in emergency situations, then the 

administrative plan may be referenced in the EOP. Likewise, if exceptions to 

normal administrative plans are permitted in an emergency, that fact should be 
Chapter 1: Preliminary Considerations

SLG 1-XX: Guide for All-Hazard Emergency Operations Planning (3/96)

page 1-5

noted in the relevant part of the EOP.

Mitigation 

Plans

A jurisdiction may outline its strategy for mitigating the hazards it faces; in fact, a 

mitigation plan is required of States that seek funds for post-event mitigation 

after Presidential declarations under the Stafford Act. Existing plans for

mitigating hazards are relevant to an EOP, particularly in short-term recovery 

decision-making, which can affect prospects for effective implementation of a 

mitigation strategy aimed at reducing the long-term risk to human life and 

property in the jurisdiction.

 

Preparedness 

Plans

Preparedness planning covers three objectives: maintaining existing emergency 

management capability in readiness; preventing emergency management

capabilities from themselves falling victim to emergencies; and, if possible,

augmenting the jurisdiction's emergency management capability. 

Such plans would include: the process and schedule for identifying and meeting 

training needs (based on expectations created by the EOP); the process and 

schedule for developing, conducting, and evaluating exercises, and correcting 

identified deficiencies; and plans to procure or build facilities and equipment that 

can withstand the effects of hazards facing the jurisdiction. Results of these 

efforts should be incorporated in the EOP as assumptions: that certain

equipment and facilities are available, that people are trained and exercised, etc. 

Operational checks of equipment and communications systems, however, be a 

part of each tasked organization’s standard operating procedures (SOP) for the 

period between notification and impact of an emergency. Measures to

safeguard emergency management personnel, as well as vital records and 

existing equipment, should be part of an EOP.

Recovery 

Plans 

Typically, an EOP does not spell out recovery actions beyond rapid damage 

assessment and the actions necessary to satisfy the immediate life support needs 

of disaster victims; the EOP should provide for a transition to a recovery plan, if 

any exists, and for a stand-down of response forces. However, some shortterm recovery actions are natural extensions of response and are covered by the 

EOP. For example, meeting human needs would require maintaining logistical 

support to mass care actions initiated in the response phase, with the addition of 

crisis counseling; it would also involve restoration of infrastructure "lifelines," and 
Chapter 1: Preliminary Considerations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 1-7

perhaps debris removal to facilitate response. At the State's discretion, its 

disaster assistance plans for distribution of Federal and State relief funds may be 

annexed to the EOP. Disaster assistance plans would identify how eligible aid 

recipients will be identified, contacted, matched to aid, certified, and issued 

checks.

Beyond that lies long-term recovery, which is not strictly time-sensitive and can 

sometimes be more ad hoc. Pre-disaster planning for long-term mitigation and 

recovery would involve identifying strategic priorities for restoration,

improvement, and growth; here emergency management planning starts to

intersect the community development planning of other agencies. FEMA

recommends and supports the development of State and local hazard mitigation 

plans to facilitate and expedite obtaining Federal mitigation funds during the 

post-disaster recovery period.

Plans Versus 

Procedures 

Although the distinction between plans and procedures is fluid, writers of an 

EOP should use it to keep the EOP free of unnecessary detail. The basic 

criterion is: What does the entire audience of this part of the EOP need to 

know, or have set out as a matter of public record? Information and "how-to" 

instructions that need be known only by an individual or group can be left to 

SOPs; these may be annexed to the EOP or referenced as deemed

appropriate.

For many responsibilities in the EOP, it will be enough to assign the

responsibility to an individual or organization and specify the assignee's

accountability: to whom does he or she report, or with whom does he or she 

"coordinate"? For example, an EOP that assigns responsibility for putting out 

fires to the fire department would not detail what should be done at the scene or 

what fire equipment is most appropriate: The EOP would defer to the fire 

department's SOPs for that. The EOP would describe the relationship between 

the Incident Commander (IC) and the central organization that directs the total 

jurisdictional response to the emergency, of which the fire in question might be 

only a part. Likewise, the EOP would not detail how to set up facilities for 

emergency operations, leaving that for an SOP to be used by the responsible 

organization(s). 

The emergency manager should work with the senior representatives of tasked 

organizations to ensure that SOPs needed to implement the EOP do in fact exist 
Chapter 1: Preliminary Considerations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 1-7

and do not conflict with the EOP or one another.

This Guide does not establish requirements for the preparation of SOPs.

However, SOPs should be developed by each organization tasked in the EOP. 

 SOPs provide the means to translate organizational tasking into specific actionoriented checklists that are very useful during emergency operations. They tell 

how each tasked organization or agency will accomplish its assigned tasks. 

Normally, SOPs include checklists, call- down rosters, resource listings, maps, 

charts, etc. and give step-by-step procedures for notifying staff, obtaining 

and using equipment, supplies, vehicles, obtaining mutual aid, reporting

information to organizational work centers and the emergency operating center 

(EOC), communicating with staff members that are operating from more than 

one location, etc. Development of certain procedures is required in REP, 

CSEPP, and Emergency Planning and Community Right-to-Know Act

(EPCRA) planning. 
SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96) 

page 2-1

Chapter 2

The Planning Process

Introduction

Normally, the emergency manager serves as the "planning coordinator"

responsible for leading the jurisdiction's effort to develop an EOP. This chapter 

offers the emergency manager suggestions for the process of developing an 

EOP. This process may be more important and useful to the jurisdiction's 

emergency management community than the final product itself. The

suggestions can be easily tailored to the specific needs of a jurisdiction.

 

Principles

Developing an all-hazard plan for protecting lives and property in the jurisdiction 

may appear to be an extremely difficult challenge. It need not be if following 

principles are applied.

Don't Reinvent

the Wheel

Emergency operations planning need not start from scratch. Planners should 

take advantage of others' experience.

Use Available 

Guidance and 

Training 

Materials

The State is a valuable resource for the local jurisdiction. States typically

publish their own planning guides, conduct workshops and training courses, and 

assign their planners to work with local planners. FEMA supports State training 

efforts through its Emergency Management Institute (EMI), and offers courses. 

FEMA also publishes many documents relating to planning for specific functions 

and hazards.

 

Build on What 

Exists in the 

Jurisdiction 

If the jurisdiction has an EOP or other contingency plans, they are the place to 

start. Existing plans can point the planning coordinator to applicable authorities, 

perceptions of risk in the community, members of the jurisdiction's emergency 

response organization, mutual aid agreements with other jurisdictions, and more. 

The planning coordinator should review the existing EOP for questionable

assumptions, inaccuracies, inconsistencies, omissions, and vagueness. Critiques 

of recent emergency operations and exercises in the jurisdiction will help the 

planning coordinator develop a sense of what needs to be done.
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96) 

page 2-2

Don't Go It 

Alone 

The planning coordinator's is only one view. If a coordinated emergency

response depends on teamwork, planning for response should involve the

jurisdiction's emergency "team." Documentary research should be supplemented 

by interviews with key officials of the jurisdiction's response organization: They 

may have information and insights that the planning coordinator lacks, as well as 

ideas that can spark creative solutions to problems. Key officials also

determine what staff will be made available for planning meetings and what 

priority emergency planning issues will have in day-to-day work, so it is

important to secure their commitment to the planning process.

Benefits of the 

Team 

Approach

FEMA recommends a team approach to planning for these reasons: 

ÿ The EOP is more likely to be used and followed if the tasked

organizations have a sense of ownership, i.e., their views were

considered and incorporated.

ÿ More knowledge and expertise are brought to bear on the planning 

effort.

ÿ Closer professional relationships among response and recovery

organizations in the planning process should translate into better

coordination and teamwork in emergencies.

Potential 

Team 

Members

The planning team should be drawn from various groups that have a role or 

stake in emergency response. The list below is not all-inclusive. The important 

thing is for the planning coordinator to ensure that the planning team

membership represents a good cross section of the organizations involved in the 

jurisdiction's emergency response effort. 

ÿ The Office of the Chief Executive.

ÿ Law enforcement, fire/rescue, and emergency medical services

(including dispatchers/911 at the local level), public health and safety, 

etc.

ÿ Existing planning agencies (e.g., community development, economic

development, city planning commissions/municipal planners).
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-3

ÿ Hazard mitigation planner/coordinator.

ÿ Local Emergency Planning Committees (LEPC), for hazardous

materials (HAZMAT) information.

ÿ Public works agencies and utility companies.

ÿ Social service agencies and volunteer organizations (e.g., American Red 

Cross (ARC), Salvation Army, etc.).

ÿ Area hospitals, emergency medical service agencies, medical examiner, 

coroner, mortician, and other appropriate members of the medical

community.

ÿ Educational administrators.

ÿ Public Information Officer (PIO).

ÿ Local media.

ÿ Industrial and military installations in the area.

ÿ State aviation authority and/or others connected with provision of air 

support.

ÿ Port authorities, U.S. Coast Guard station.

ÿ The jurisdiction's Chief Financial Officer, auditor, and heads of any

centralized procurement and resource support agencies.

ÿ Jurisdiction's legal counsel.

ÿ Labor and professional organizations.

ÿ Organizations in the animal care and control community, including

veterinary services.

ÿ Amateur radio/CB groups, such as Radio Amateur Civil Emergency 
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-3

Service (RACES), Radio Emergency Associated Communications

Teams (REACT), etc.

ÿ Emergency managers and agency representatives from neighboring

jurisdictions, to coordinate mutual aid needs.

ÿ State and/or Federal representatives, as appropriate.

Don't Forget 

the Chief 

Executive 

Official 

(“CEO”) 

Potential planning team members have many day-to-day concerns. For the 

team to come together, potential members must be convinced that emergency 

planning has a higher priority--and the person to convince them is the

jurisdiction's chief executive. The emergency manager has to enlist the chief 

executive's support for and involvement in the planning effort. To do so, the 

emergency manager must show the chief executive what is at stake in

emergency planning: share the hazard analysis for the jurisdiction, describe what 

government and especially the chief executive will have to do, color

presentations with images from disasters like those that could befall the

jurisdiction, discuss readiness assessments and exercise critiques, and remind 

the chief executive that planning ultimately facilitates his or her job in an

emergency. Any backing available from the chief executive's office will help the 

emergency manager to obtain the respectful cooperation of other agency heads. 

 

Steps

Following are the basics for development and continual refinement of an EOP. 

They may be adapted to the needs of a jurisdiction.

Research The first step is research. This consists of reviewing the jurisdiction's planning 

framework, analyzing the hazards faced by the jurisdiction, determining the 

resource base, and noting characteristics of the jurisdiction that could affect 

emergency operations.

Review Law, 

Plans, 

Mutual Aid 

Agreements, 

and Guidance 

Review local and/or State laws, rules, regulations, executive orders, etc., that 

may be considered enabling legislation. Review Federal regulatory

requirements. Review guidance, existing plans for the jurisdiction, and the plans 

of neighboring jurisdictions. Review agreements with neighboring jurisdictions, 

military installations, private sector organizations, etc. Become familiar with the 
Chapter 2: The Planning Process

SLG 1-XX: Guide for All-Hazard Emergency Operations Planning (3/96) 

page 2-6

plans of higher levels of government that may be called on to provide assistance. 

Conduct 

Hazard/Risk 

Analysis

Hazard analysis is the basis for both mitigation efforts and EOPs. From an 

emergency operations planning perspective, hazard analysis helps a planning

team decide what hazards merit special attention, what actions must be planned 

for, and what resources are likely to be needed.

Comprehensive hazard analysis merits its own document-length discussion. 

Chapter 6 offers some considerations for specific hazards, and the Bibliography 

lists sources for both general concepts and hazard-specific information.

However, for purposes of emergency operations planning, basic considerations 

of process, methods, and sources include the following:

ÿ Process and Methods. Hazard analysis requires the planning team to: 

 

• Identify hazards, to know what kinds of emergencies have 

occurred or could occur in the jurisdiction.

- Begin with a list of hazards that concern emergency

management in your jurisdiction. Laws, previous plans, 

and elected officials can help define the universe of

hazards which the planning team should address in the 

all-hazard EOP. A list of "traditional" emergency

management concerns might include: airplane crash,

avalanche, dam failure, drought, earthquake, epidemic, 

flood, HAZMAT release (in transport or from a fixed 

facility), hurricane, landslide, mudslide, power failure

(sustained), radiological release (in transport or from a 

fixed facility), subsidence, terrorism, tornado, train

derailment, tsunami, urban conflagration, volcanic

eruption, wildfire, and winter storm.

Keep in mind that hazard lists pose two problems. The first is the possibility of 

exclusion or omission: there is always a potential for new and unexpected 

hazards (which is part of why maintaining an all-hazard capability is

important). The second is that such lists involve groupings, which can affect 

subsequent analysis. A list may give the impression that hazards are

independent of one another, when in fact they are often related (e.g., an 
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-6

earthquake might give rise to dam failure). Lists may group under one

category very different causes or sequences of events that require different types 

of response. For example, "flood" might include dam failure, cloudbursts, or 

heavy rain upstream. Lists also may group a whole range of consequences 

under the category of a single hazard. "Terrorism," for example, could include 

use of conventional explosives against people or critical infrastructure;

nuclear detonation; release of lethal chemical, biological, or radiological 

material; and more. "Hurricane" might include not only high winds, storm 

surge, and battering waves, but even the weakened, post-landfall tropical 

storm system that can cause inland flooding. It may be necessary, as the 

hazard analysis evolves, to refine the list of hazards.

− For each of these potential emergencies, determine

whether it has happened or could happen in the

jurisdiction. Some can be eliminated by common sense 

(e.g., where mountains do no exist, volcanic eruption is 

not likely). For the rest, there are three lines of

investigation: history (including statistical compilations), 

expert opinion, and maps--which summarize results of 

the first two.

• Profile hazards and their potential consequences, to have 

the information necessary for the next two steps (and to set the 

stage for other applications of the hazard analysis). The

categories of information and the precision of the data will

depend on several factors. One is the kinds of decisions the 

analysis is meant to support. For example, to decide that one 

hazard poses more of a threat than another may require only a 

qualitative estimate (e.g., "High" vs. "Medium")--but to plan for 

health and medical needs the planning team would want to have 

an estimate for likely fatalities and injuries. Another factor is the 

availability of information and time. It may be necessary to take 

a long view of hazard analysis, and have each version build on 

the preceding one as part of a "research agenda" for emergency 

management. 

- Develop information on each of the hazards identified 

for the community. Of particular interest are the

hazard's frequency of occurrence (both historical and 

predicted or probable, as available), magnitude and 
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-6

intensity, location (if the hazard is associated with a 

facility or landscape feature) and spatial extent (either 

around the known location of the hazard or as an

estimate for non-localized hazards like tornado),

duration, seasonal pattern (based on month by

month historical occurrence), speed of onset, and

availability of warning.

− Develop information on the potential consequences of 

the hazard. This depends on identifying a vulnerable 

zone (if the hazard is localized) or relating the estimated 

spatial extent of the hazard to the jurisdiction (by a 

simple ratio of the hazard's extent to the jurisdiction's 

area, to get gross estimates of lives and property at risk, 

or by "overlaying" the estimated spatial extent of the 

hazard on a portion of the jurisdiction and determining 

what would be affected). Several kinds of

consequences can be investigated; response planning

would be concerned with effects on people (total

affected, likely deaths and injuries), critical facilities and 

community functions, property, and sites of potential

secondary hazards (e.g., dams, chemical processing

plants). The planning team can use both historical

information and modeling to arrive at estimates for

planning. In modeling, the general process is to

consider what is exposed to a given intensity of the 

hazard, how susceptible it is to a type of damage or 

consequence (e.g., death, for people; destruction, for 

property; days of service loss or repair time for critical 

facilities), and some measure of loss (e.g., dollars, for 

property). Over time, collection of this information can 

be made easier by sectoring the jurisdiction (optimally, 

in sectors that will also be used for damage assessment) 

and developing a profile of each sector: e.g., rough

number of structures falling into different classes of

construction, number of different kinds of critical

facilities, rough number of people in different age groups 
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-7

or having special needs, etc. 

• Compare and prioritize risks, to determine which hazards 

merit special attention in planning (and other emergency

management efforts). The planning team must consider

frequency of the hazard and the likely or potential severity of its 

consequences, to develop a single indicator of the threat: This 

allows comparison and setting of priorities. While a

mathematical approach is possible, it is easier to manipulate 

qualitative ratings (e.g., "High", "Medium", "Low") or index

numbers (e.g., reducing quantitative information to a 1 to 3, 1 to 

5, or 1 to 10 scale, based on defined thresholds) for different 

categories of information used in the ranking scheme. Some 

approaches involve consideration only of frequency and

consequences, and treat the two categories as equally

important. In other approaches, potential consequences receive 

more weight than frequency.

• Create and apply scenarios, to brainstorm needed hazardspecific planning provisions and estimate hazard-specific 

resource requirements. While it is important to have a sense of 

magnitudes involved (whether the single indicator used to rank 

hazards, or estimated numbers of people affected), these are 

static. Planning is concerned with actions that take place in 

time. For the top-ranked hazards, or hazards that rate above a 

certain threshold, the planning team should consider scenarios. 

Using information from the profile, the planning team should 

think about how the hazard occurrence would develop in the 

jurisdiction. Starting with a given intensity of the hazard, the 

team can imagine the hazard's development from initial warning 

(if available) to its impact on a specific part of the jurisdiction 

(as identified through analysis) and its generation of specific 

consequences (e.g., collapsed buildings; loss of critical services 

and infrastructure; death, injury, or displacement). Through this 

initial brainstorming--which can be refined in formal tabletop 

exercises--the team will decide what actions and resources will 

become necessary. It will also become conscious of the
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-8

planning assumptions to be used in functional annexes and

hazard-specific appendices to the EOP (discussed in the

following chapters of this Guide).

• Sources. Sources of maps for hazards would include

compilations of hazard information made by FEMA and State 

emergency management agencies, the U.S. Geological Survey 

(USGS) and State geological surveys, and the National

Weather Service (NWS) and its local offices. For more

localized hazards, maps from the Federal Insurance

Administration (FIA), maps of 10- and 50-mile Emergency

Planning Zones (EPZ) around nuclear power plants, and any 

maps of HAZMAT sites prepared by the LEPC would be 

useful. For historical investigation, many potential sources exist. 

 Consult Federal or State hazard analyses, as appropriate, to 

see if the historical occurrence of the hazard is tabulated by 

jurisdiction. Also interview representatives from organizations 

on the planning team about their experience. Check local ARC 

disaster records. Check police, fire, and other responder

records. Research area newspapers at the library. Check with 

utilities and businesses/facilities that have operated in the area 

for some time. Involve the local or State historical society, and 

perhaps area universities (e.g., departments of history,

sociology, geography, engineering). Professional or business

associations (e.g., of insurers, engineers and builders, etc.) may 

have useful information. Long-time community residents can 

even contribute. For expert opinion on hazard potential, the 

sources are similar. Federal, State, and local agencies;

academic, industrial, and public interest group researchers (or 

private consultants specializing in hazard analysis); and

professional associations concerned with the hazards on your 

list should be able to help, either through interviews or

publications. Sources for information on the community and 

possible consequences to it vary. Ideally, work already will 

have been done regarding potential consequences of certain

facility-based hazards--and it is a matter of checking with the 

facility and the agency (local, State, Regional, or Federal) that 
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-9

regulates that kind of facility. For demographics, Census data 

are available, as are off-the-shelf computer products that

organize such data by ZIP code. The planning team also should 

make extensive use of the information about the jurisdiction that 

is constantly developed within the jurisdiction. The local

planning and zoning commission or department, for example, 

probably has extensive data on demographics, on land use, on 

numbers and types and--with the tax assessor and/or local

realtors' association--value of buildings, and on

the structural integrity of buildings (or at least on the code to 

which they were to be built, and what that code was and was 

not designed to do regarding hazard effects). The local public 

works (or civil engineering) department and utilities are the

obvious sources for information on potential damage to and 

restoration time for the critical infrastructure threatened by

hazard effects. The Chamber of Commerce may offer a

perspective on damage to business and general economic loss. 

Other sources of information mentioned previously--emergency 

service logs and reports, universities, professional associations, 

etc.-- also apply.

Use of Standard Loss Estimation Methodologies and GIS-Based Methodology 

Software HAZUS for Conducting Hazard/Risk Analysis: FEMA and the States 

have committed to the development of an all-hazard risk assessment capability 

as a Mitigation objective under the PPA. Therefore, in the near future, the 

process of analyzing and defining the risk associated with a given natural 

hazard and making a scientifically and technically valid assessment of the 

impact on a given area or region, will be feasible by using standard, nationally 

applicable loss estimation methodologies and a methodology software

program called HAZUS developed by FEMA. State and local emergency 

managers will find these methodologies and HAZUS to be valuable tools to aid 

them in all phases of emergency management--preparedness, response,

recovery, and mitigation. 

As early as January 1997, FEMA’s standard Earthquake Loss Estimation 

Methodology and HAZUS will be available to States. This GIS-based software 

program can be used to generate an estimate of the consequences of a 

“scenario earthquake”--that is, an earthquake with a specified magnitude and 

location--and provide a “loss estimate” that describes the scale and extent of 

the damage and disruption that may result. To achieve an all-hazard risk 

assessment capability, FEMA is currently developing loss estimation
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-11

methodologies for other hazards, such as flood, wind, and hurricane, that will 

expand the capability of HAZUS. These are expected to be available in the next 

two or three years. In return, States are encouraged under the

PPA/Cooperative Agreement process to collect digital building inventory and 

hazard data from State, local, and private sources and to incorporate that data 

into HAZUS with the objective of refining the results of loss estimates and other 

analyses conducted using HAZUS.

Therefore, local jurisdictions may wish to consult with FEMA or their State 

Emergency Management Agency when they begin to develop an EOP to 

determine whether their State has obtained and implemented HAZUS and, if so, 

how it can be used to help them identify potential hazards and characterize 

risk associated with the occurrence of those hazards.

Determine the 

Resource Base 

Agency heads and other potential members of the planning team should know 

what kinds of resources they can bring to emergency response and recovery. 

The problem is to quantify and list them, and compare the resources available to 

the resources needed for an effective emergency response. Shortfalls may

require negotiating agreements with private suppliers or other jurisdictions.

Determination of the resource base also should include a consideration of what 

facilities are vital to emergency operations and how they might be affected by 

hazards: Problems that cannot be mitigated should be taken into account in the 

EOP, not assumed away.

Note Special 

Facets of the 

Planning 

Environment

The planning team should note geographic and topographic features that may 

affect operations--for example, dependence on a single main transportation

artery in and out of the jurisdiction. Planners also should identify special needs 

groups (non-English speakers, the aged, the disabled) and where they are 

concentrated (especially institutions such as nursing homes). Finally, the

planning team should be alert to demographic and other trends in the jurisdiction 

that affect assumptions.

Development Research leads to a written EOP through steps similar to these:

 

ÿ Develop a rough draft of the basic plan, functional annexes, and hazardspecific appendices to serve as a point of departure for the planning 

team.

ÿ Develop agendas and invitation lists for first cycle of planning meetings; 

perhaps deliver invitations in person and conduct preliminary interviews 
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-12

with key officials. 

ÿ Brief the “CEO” and perhaps invite him or her as a keynote speaker.

ÿ Conduct a presentation meeting, establish committees for parts of the 

EOP, appoint committee chairs, and schedule a follow-up meeting.

ÿ Work with committees on successive drafts.

ÿ Prepare necessary graphics (e.g., maps, organizational charts).

ÿ Produce a final draft and circulate the draft to the planning team for 

review and comment.

ÿ Hold a meeting to incorporate final changes, discuss an implementation 

strategy and necessary distribution, and obtain (informal) commitments 

to provide information that could necessitate revision.

ÿ Obtain concurrence from organizations with identified responsibilities for 

implementing the EOP.

ÿ Present the EOP to local elected officials and obtain official

promulgation of the EOP (advise the local media in advance). 

ÿ Print and distribute the EOP, with a copy (or press release) to local 

media. Maintain a record of the organizations and persons that

received a copy (or copies) of the plan.

Validation The written EOP should be checked for its conformity to applicable regulatory 

requirements and the standards of Federal or State agencies (as appropriate)--

and for its usefulness in practice. Further, conduct of a "table top" exercise 

involving the key representatives of each tasked organization may serve as a 

practical and useful means to help validate the plan.

 

Plan Review Consult the next level of government about its EOP review cycle. Plan reviews 

allow responsible agencies to suggest improvements in an EOP based on their 

accumulated experience. States may review local EOPs; FEMA Regional
Chapter 2: The Planning Process

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 2-12

offices may assist States in the review of EOPs, upon request. Hazard-specific 

Federal programs (such as the REP program) require periodic review of certain 

sections of the all-hazard EOP, and may require review of associated SOPs.

Plan Testing To evaluate new or revised EOP, use functional and full scale emergency

management exercises. Exercises offer the best way, short of emergencies, to 

determine if an EOP is understood and "works." 

 

Maintenance The EOP is a living document. Problems emerge, situations change, gaps 

become apparent, Federal requirements are altered--and the EOP must be 

adapted to remain useful and up-to-date.

Remedial

Action

Process

A remedial action process can help a planning team identify, illuminate, and 

correct problems with the jurisdiction’s EOP. A remedial action process

captures information from exercises, post-disaster critiques, self-assessments, 

audits, administrative reviews, and the like, which may indicate that deficiencies 

exist. It then brings members of the planning team together to discuss the 

problem, and to consider and assign responsibility for remedies. Remedial 

actions may involve revising planning assumptions and operational concepts, 

changing organizational tasks, or modifying organizational implementing

instructions (SOPs). They also may involve refresher training on performance of 

tasks assigned by the EOP to an organization’s personnel. The final component 

of a remedial action process is a means to track and follow up the assigned 

actions.

Revision 

Process 

Establish a process for review and revision of the EOP. Review should be a 

recurring activity, accomplished on at least an annual basis. As appropriate, 

significant issues and problems identified through a remedial action process 

and/or the annual review should provide the information needed to allow the 

planning team to make the necessary revision(s) to the plan.

Implementing 

Documents

Ensure that each tasked organization or individual develops the SOPs necessary 

to facilitate the accomplishment of assigned tasks. The EOP does not anticipate 

every detail of the tasks it describes--but the details are important to its 

implementation. 
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 3-1

Chapter 3

Emergency Operations Plan Format

Introduction

A planning team's chief concern will be to include all essential information and 

instructions in the EOP. Poor organization of that information can limit the 

EOP's effectiveness.

FEMA does not mandate a particular format for EOPs. In the final analysis, an 

EOP's format is "good" if the EOP's users understand it, are comfortable with it, 

and can use it to extract the information they need. When that test is not met--in 

training, exercises, actual response, plan review and coordination meetings, and 

the like--some change of format may be necessary.

In designing a format for an all-hazard EOP and in reviewing the draft, the 

planning team should consider the following:

ÿ Organization. Do the EOP subdivisions help users find what they

need, or must users sift through information that is irrelevant? Can

single subdivisions be revised without forcing a substantial rewrite of the 

entire EOP? 

ÿ Progression. In any one section of the EOP, does each element seem 

to follow from the previous one, or are some items strikingly out of 

place? Can the reader grasp the rationale for the sequence and scan for 

the information he or she needs?

ÿ Consistency. Does each section of the EOP use the same logical 

progression of elements, or must the reader reorient himself or herself in 

each section? 

ÿ Adaptability. Is information in the EOP organized so that the EOP 

may be used in unanticipated situations? 

ÿ Compatibility. Does the EOP format promote or hinder coordination 
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 3-1

with other jurisdictions, including State and/or Federal Government? 

Are problems in this area more easily solved by

reformatting the EOP or by making a chart of the coordination

relationships (i.e., a "crosswalk")?

This chapter outlines a format based on FEMA's experience with these

concerns. Again, the format is not mandated.

A Functional Approach to the Overall Structure of the EOP

Concept While the causes of emergencies vary greatly, the potential effects of

emergencies do not. This means that jurisdictions can plan to deal with effects 

common to several hazards, rather than develop separate plans for each hazard. 

 For example, earthquakes, floods, and hurricanes all can force people from 

their homes. The jurisdiction can develop a plan and an organization around the 

task, or function, of finding shelter and food for the displaced--with minor 

adjustments for the probable rapidity, duration, location, and intensity of

different hazards if desired. It can do the same for other common tasks (see 

Chapters 5 and 6 for a discussion of selected functions and of hazard-specific 

adjustments that can be made). In fact, a critical aspect of planning for the 

response to emergency situations is to identify all of these common tasks, or 

functions, that must be performed, assign responsibility for accomplishing each 

function, and ensure that tasked organizations have prepared SOPs that detail 

how they will carry out critical tasks associated with the larger function.

However, the plans for performing each function should not be created in

isolation. Since the jurisdiction's goal is a coordinated response, task-based 

plans should follow from a Basic Plan that outlines the jurisdiction's overall

emergency organization and its policies (see Chapter 4).

 

Components EOPs developed using the functional approach consist of a Basic Plan,

functional annexes, and hazard-specific appendices. These are supplemented by 

the SOPs and checklists necessary for implementation of the EOP.

The Basic Plan The Basic Plan is an overview of the jurisdiction's emergency response

organization and policies. It cites the legal authority for emergency operations, 

summarizes the situations addressed by the EOP, explains the general concept 
Chapter 3: Emergency Operations Plan Format

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 3-3

of operations, and assigns responsibilities for emergency planning and

operations.

 

Functional 

Annexes

Functional annexes are plans organized around the performance of a broad 

task. Each annex focuses on one of the critical emergency functions that the 

jurisdiction will perform in response to an emergency. The number and type of 

functional annexes included in the EOP may vary from one jurisdiction to

another, depending on needs, capabilities, and organization. Since functional

annexes are oriented toward operations, their primary audience consists of

those who perform the tasks. They do not repeat general information contained 

in the Basic Plan.

HazardSpecific 

Appendices

Hazard-specific appendices provide additional detailed information applicable 

to the performance of a particular function in the face of a particular hazard. 

They are prepared when hazard characteristics and regulatory requirements 

warrant and are attached to the relevant functional annex(es).

 

SOPs and 

Checklists

SOPs and checklists provide the detailed instructions that an organization or an 

individual needs to fulfill responsibilities and perform tasks assigned in the EOP. 

 They may be attached to the EOP or referenced as deemed appropriate.

Options Creating a different plan for each hazard is an option, but not one that FEMA 

recommends. The functional approach:

ÿ Avoids duplication of the planning effort for every hazard and for every 

task, by dividing the EOP into four levels of specificity (Basic Plan, 

functional annexes, hazard-specific appendices, and SOPs).

ÿ Serves in all hazard situations, even unanticipated ones, by organizing 

the EOP around performance of "generic" functions. 

ÿ Permits emphasis on hazards that pose the greatest risk to a

jurisdiction, through the use of hazard-specific appendices.

A Task-Based Approach to Each Section of the EOP

Concept A standard format for the Basic Plan, functional annexes, and hazard-specific 
Chapter 3: Emergency Operations Plan Format

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 3-4

appendices will make the EOP easier to use. The parts of an EOP can be 

structured around the problem to be solved, the objective to be attained, or the 

task to be performed. The following format is based on an easily understood, 

common-sense approach: definition of

objective, characterization of the situation, general plan of action, delegation of 

responsibilities, and information on resources and administrative support

necessary for accomplishing the tasks.

Components FEMA recommends a format consisting of: Purpose, Situation and

Assumptions, Concept of Operations, Assignment of Responsibilities,

Administration and Logistics, Plan Development and Maintenance, and

Authorities and References. Chapter 4 describes these components in 

more detail.

Options This is a common, proven plan format that is easily understood. Possible 

modifications include:

ÿ Listing all agencies involved in an annex immediately after the purpose 

statement, to permit even faster scanning of who does what.

ÿ Setting forth "policies" in a section separate from those on situation and 

assumptions or concept of operations. 

Consistent application of this or a similar format throughout the EOP will help 

the reader scan the document quickly for necessary information.
page 4-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Chapter 4

Basic Plan Content

Introduction

The Basic Plan, as defined in Chapter 3, provides an overview of the

jurisdiction's approach to emergency operations. It details emergency response 

policies, describes the response organization, and assigns tasks. Although the 

Basic Plan guides development of the more operationally oriented functional 

annexes, its primary intended audience consists of the jurisdiction's chief

executive, his or her staff, and agency heads. The Basic Plan elements listed in 

this chapter--not necessarily in the order presented or under the headings given 

here--should meet the needs of this audience while providing a solid foundation 

for development of functional annexes.

Elements of the Basic Plan

Introductory 

Material 

The EOP should be prefaced by certain items that enhance accountability and 

ease of use. Among these are the promulgation document, the signature page, 

the dated title page and the record of changes, the record of distribution, and 

the table of contents.

Promulgation 

Document

The promulgation document enters the EOP "in force"; it gives the EOP official 

status and provides both authority and responsibility for organizations to

perform their tasks. The promulgation document is usually a letter signed by the 

jurisdiction's chief executive. In it, the chief executive might declare simply that 

the EOP is in force, perhaps citing the legal basis for his or her authority to 

make that declaration. However, the promulgation document also should

mention tasked organizations' responsibility to prepare and maintain SOPs and 

commit them to the training, exercises, and plan maintenance efforts needed to 

support the EOP. The promulgation document also allows the chief executive 

to affirm his or her support for emergency management.

Signature 

Page 

Some jurisdictions may choose to include a signature page to show that, prior to 

seeking the chief executive's signature, all response organizations tasked in the 

EOP have coordinated in the plan's development and are committed to its 
Chapter 4: Basic Plan Content page 4-2

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

effective implementation.

Dated Title 

Page and 

Record of 

Changes 

The title page should bear the date of publication; a record of changes can be a 

chart containing a number assigned to any change, a description of the change 

and/or the affected part of the EOP, the date of the change, the date of its 

actual entry into the EOP, and the signature or initials of the person responsible. 

 These items should be included so users of the EOP can be certain that 

everyone is using the most recent version of the EOP.

Record of 

Distribution 

This is a list of individuals and organizations that receive a copy of the EOP. 

The record of distribution can be used to provide evidence that tasked

individuals and agencies have had the opportunity to read and understand their 

responsibilities, which is a basic assumption of an EOP. To that end, copies 

may be numbered and the record may show both a date of transmittal and a 

date on which receipt is confirmed. The record of distribution also serves as a 

convenient checklist for distributing later revisions to the plan. Note that the list 

need not be limited to response organizations. Since the public has an interest in 

emergency preparedness measures, copies of the EOP (without SOPs, calldown lists, and other sensitive information) can be made available to public 

libraries, as well as to media contacts. Neighboring jurisdictions also should 

receive copies of the EOP. For the sake of convenience, a long record of 

distribution may be treated as a stand-alone annex and placed at the end of the 

EOP, or kept separate as an "administrative" document.

 

Table of 

Contents 

A table of contents makes finding information easier. It provides a quick topical 

overview of the EOP. The table of contents should list all sections of the EOP 

and be supported with clearly labeled tabs for each section.

Purpose The rest of the EOP flows logically from its purpose. The Basic Plan should 

contain a general statement of what the EOP is meant to do. The statement 

should be supported by a brief synopsis of the Basic Plan, the functional

annexes, and the hazard-specific appendices. 

Situation and 

Assumptions 

After the broad statement of purpose, the situation and assumptions section 

narrows the scope of the EOP by outlining what hazards the EOP addresses, 

what characteristics of the jurisdiction may affect response activities (and how), 

and what information used in preparing the EOP must be treated as assumption 
Chapter 4: Basic Plan Content

SLG 1-XX: Guide for All-Hazard Emergency Operations Planning (3/96)

page 4-2

rather than fact. Policies also circumscribe and affect response activities, and 

could be treated either as part of the situation or in a separate section, if

desired.

 

Situation The situation section characterizes the "planning environment"--and so makes 

clear why emergency operations planning is necessary. The situation section 

should, at a minimum, draw from the jurisdiction's hazard identification and 

analysis. The situation section may include relative probability and impact of the 

hazards, geographic areas likely to be affected by particular hazards, vulnerable 

critical facilities (nursing homes, schools, hospitals, etc.), population distribution, 

characteristics and locations of special populations (institutionalized persons, the 

elderly and disabled, those who speak languages other than English, etc.), 

critical resource dependencies on other jurisdictions, and more. The level of 

detail is a matter of judgment; some information may be deemed useful to a few 

specific functional annexes and presented there. In any event, maps should be 

included (as tabs) to support the situation description.

Assumptions Assumptions are simply that: what, in developing the EOP, has been treated as 

true for the EOP's execution. These should be included to show the limitations 

of the EOP, allowing EOP users (and others) to foresee that some

improvisation or modification may become necessary. It is valid to include even 

“obvious” assumptions: that identified hazards will occur (scenarios, if used, can 

be outlined), that individuals and organizations are familiar with the EOP and will 

execute their assigned responsibilities, that assistance may be needed, and that--

if so--assistance will be available.

 

Concept of 

Operations 

The audience for the Basic Plan needs to picture the sequence and scope of the

planned emergency response. The concept of operations section explains the 

jurisdiction's overall approach to an emergency situation, i.e., what should

happen, when, and at whose direction. Topics should include: division of local, 

State, Federal, and any intermediate interjurisdictional responsibilities; activation 

of the EOP; "action levels" and their implications (if formalized in the

jurisdiction); general sequence of actions before, during, and after the

emergency situation; who requests aid and under what conditions (the necessary 

forms being contained in tabs); and, for States, who appoints a State

Coordinating Officer (SCO) and how the SCO and the State response

organization will coordinate and work with Federal response personnel in
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-4

accordance with the FRP (see Chapter 7). The concept of operations will 

touch on direction and control, alert and warning, or continuity of operations 

matters that may be dealt with more fully in annexes.

Organization 

and Assignment 

of 

Responsibilities

This section of the Basic Plan establishes the emergency organization that will be 

relied on to respond to an emergency situation. It includes a listing by position 

and organization of what kinds of tasks are to be performed; such a listing 

permits a quick grasp of who does what, without some of the procedural details 

included in functional annexes. When two or more organizations perform the 

same kind of task, one should be given primary responsibility and the other(s) 

should be given a supporting role. For the sake of clarity, a matrix of

organizations and areas of responsibility (including functions) should be included 

to show at a glance the primary and supporting roles (see Table 4-1 for an 

example). However, shared general responsibilities--such as developing SOPs-

-should not be neglected. The listing by organizations might also include

organizations not under jurisdictional control, if they have defined responsibilities 

for responding to emergencies that might occur in the jurisdiction. 

The following are examples of the types of tasking that should be assigned to 

agencies, organization chiefs, and individuals in the Basic Plan (but please note 

that specific tasking related to the critical operational activities each organization 

is responsible for accomplishing are detailed in each of the functional annexes to 

the EOP and are addressed in Chapter 5 of this Guide).

Chief 

Executive 

Official 

(“CEO”)

ÿ Sets policy for the emergency response organization.

ÿ Assumes responsibility for the overall response and recovery 

operations.

ÿ Authorizes the mitigation strategy for recovery.

ÿ Identifies by title or position the individuals responsible for serving as 

IC(s), EOC Manager, Health and Medical Coordinator,

Communications Coordinator, Warning Coordinator, PIO, Evacuation 

Coordinator, Mass Care Coordinator, and Resource Manager.
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-5

ÿ Identifies by title or position the individuals assigned to work in the 

EOC during emergencies.
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-6

Fire 

Department

Manages fire department resources and directs fire department operations.

Police 

Department 

Manages law enforcement resources and directs traffic control and law

enforcement operations.

Health and 

Medical 

Coordinator

ÿ Coordinates the use of health and medical resources and personnel

involved in providing medical assistance to disaster victims.

ÿ Meets with the heads of local public health, emergency medical (EMS), 

hospital, environmental health, mental health, and mortuary services, or 

their designees, to review and prepare emergency health and medical 

plans and ensure their practicality and interoperability. When

appropriate, includes local representatives of professional societies and 

associations in these meetings to gain their members’ understanding of 

and support for health and medical plans.

ÿ Meets with representatives of fire and police departments, emergency 

management agencies, military departments, State and Federal

agencies, and the ARC to discuss coordination of disaster plans.

Public Works ÿ Manages public works resources and directs public works operations 

(e.g., water supply/treatment, road maintenance, trash/debris removal).

ÿ Coordinates with private sector utilities (e.g., power and gas) on

shutdown and service restoration.

ÿ Coordinates with private sector utilities and contractors for use of

private sector resources in public works-related operations.

Warning 

Coordinator

ÿ Determines warning resource requirements.

ÿ Identifies warning system resources in the jurisdiction that are available 
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-6

to warn the public.

ÿ Performs a survey to establish warning sites.

ÿ Identifies areas to be covered by fixed-site warning systems.

ÿ Develops procedures to warn areas not covered by existing warning 

systems.

ÿ Develops special warning systems for those with hearing and sight

disabilities.

ÿ Develops means to give expedited warning to custodial institutions (e.g., 

nursing homes, schools, prisons).

ÿ Coordinates warning requirements with the local Emergency Alert

System (EAS) stations, and other radio/TV stations in the jurisdiction.

ÿ Develops a chart of various warning systems, applicability of each to 

various hazards, and procedures for activating each.

ÿ Coordinates planning requirements with the EOC Manager.

EOC Manager (Note: In many jurisdictions, this function is performed by the emergency

manager.) 

ÿ Manages the EOC as a physical facility (e.g., layout and set-up), 

oversees its activation, and ensures it is staffed to support response 

organizations' needs.

ÿ Oversees the planning and development of procedures to accomplish 

the emergency communications function during emergency operations.

ÿ Ensures a sufficient number of personnel are assigned to the

communications and Information Processing sections in the EOC. 

ÿ Oversees the planning and development of the warning function.
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-7

ÿ Reviews and update listings including phone numbers of emergency

response personnel to be notified of emergency situations.

ÿ Designates one or more facilities to serve as the jurisdiction’s alternate 

EOC.

ÿ Ensures that communications, warning, and other necessary operations 

support equipment is readily available for use in the alternate EOC.

Emergency 

Manager

ÿ Coordinates with the Communications Coordinator, Warning

Coordinator, PIO, Evacuation Coordinator, Health and Medical

Coordinator, Resource Manager, and the Mass Care Coordinator to

ensure necessary planning considerations are included in the EOP.

ÿ Coordinates with the local chapter of the ARC, Salvation Army, other 

public service non-profit organizations, the School Superintendent, etc., 

as appropriate to identify a lead organization, if possible, and personnel 

to perform mass care operations jobs. 

ÿ Coordinates volunteer support efforts to include the activities of

volunteers from outside the jurisdiction and the assistance offered by 

unorganized volunteer and neighborhood groups within the jurisdiction.

ÿ Works with the PIO to develop emergency information packets and 

emergency instructions for the public.

ÿ Coordinates planning requirements with the emergency management

staff in neighboring jurisdictions that have been identified as potentially 

hazard-free and have agreed to house evacuees in their mass care 

facilities.

ÿ Coordinates the provision of mass care needs for personnel performing 

medical duties during catastrophic emergencies.

ÿ Assists, as appropriate, the animal care and control agency staff's 

efforts to coordinate the preparedness actions needed to protect and 

care for animals during and following catastrophic emergencies.
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-9

ÿ Assists the Resource Manager as needed to prepare for response

operations:

• Convenes planning meetings for the function in consultation with 

(or on the advice of) the Resource Manager.

• Designates Emergency Management Agency staff to serve in 

key posts, as appropriate. (Whether the Resource Manager 

should be an emergency management official--given the

emergency resources focus--or a Department of General

Services person is left to the discretion of the jurisdiction.)

ÿ Advocates that mitigation concerns be addressed appropriately during 

response and recovery operations.

Communications

Coordinator 

ÿ This individual is responsible for the management of all emergency

communications systems and will set emergency systems operations 

protocol for all emergency communications operations. The

coordinator:

• Assembles a team of representatives from the government 

departments and public service agencies involved in emergency 

operations to develop a communication procedure that will be 

responsive to the jurisdiction's needs and compatible with the 

communication procedures used by emergency response

organizations.

• Identifies communications and warning resources in the local

government available to the EOC.

• Identifies and designates private and public service agencies, 

personnel, equipment, and facilities that can be used to augment 

the jurisdiction's communications capabilities. For example, 

developing procedures with RACES or other available local

communications resources and arranging for emergency

augmentation of communications capabilities.
Chapter 4: Basic Plan Content

SLG 1-XX: Guide for All-Hazard Emergency Operations Planning (3/96)

page 4-8

• Designates personnel to serve on the Communications Section 

Team.

• Surveys communications equipment sites for power sources and 

locations.

• Analyzes equipment locations in relation to potential hazards 

and disaster conditions.

• Coordinates emergency communications and warning

frequencies and procedures with EOCs at higher levels of

government and with neighboring communities.

• Identifies a repair capability available under emergency

conditions and coordinates repair and maintenance activities.

• Arranges training programs for all communications staff,

including volunteers and repair personnel.

Public 

Information 

Officer (PIO)

ÿ Advises the Emergency Manager and “CEO” on matters of emergency 

public information (EPI).

ÿ Establishes and maintains a working relationship with local media.

ÿ Prepares a call-down list for disseminating EPI to groups that do not 

have access to normal media (e.g., schoolchildren).

ÿ Prepares emergency information packets for release; distributes

pertinent materials to local media prior to emergencies; and ensures that 

information needs of visually impaired, hearing impaired, and nonEnglish speaking audiences are met.

ÿ Coordinates with the animal care and control agency to obtain

information for dissemination to the public on the appropriate action that 

should be taken to protect and care for companion and farm animals, 
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-10

and wildlife during disaster situations.

Evacuation 

Coordinator

ÿ Coordinates all evacuation planning activities with the Emergency

Manager.

ÿ Identifies high-hazard areas and determines population at risk; prepares 

time estimates for evacuation of the people located in the different risk 

area zones. Accomplishment of these tasks requires the preparation of 

a threat summary, based on the jurisdiction's hazard analysis. The 

summary quantifies the specific evacuation needs of the jurisdiction. It 

addresses the evacuation planning needs that are applicable to the

hazards that threaten the people living in the jurisdiction. Typical threats 

include: hazardous materials accidents involving the facilities that use, 

store, manufacture, or dispose of them and the transport modes (planes, 

trains, boats, trucks, pipelines, etc.) used to move them; flooding as a 

result of snow melt or torrential rains in flood prone and/or low lying 

areas subject to flash floods; coastal and inland flooding caused by tidal 

surge and rain, and the wind damage associated with hurricanes and 

tropical storms; flooding of locations downstream from dams; areas 

subject to wildfire; areas subject to major seismic activity; areas within a 

10-mile radius of nuclear power plants; populations at risk to warrelated threats including attacks involving nuclear, chemical, or

biological weapons, and other situations involving terrorist activities.

ÿ Identifies transportation resources (e.g., public transit, school buses, 

etc.) likely to be available for evacuation operations; prepares an

inventory of vehicle resources (public and private buses, public works 

trucks, commercial bus companies, trucking companies, truck rental

companies, rail services, marine/ferry, air services, ambulance services, 

etc.). 

ÿ Assists facilities that provide care for special needs populations to

develop a facility evacuation plan. 

ÿ Develops information for evacuees' use on the availability and location 

of mass care facilities away from the threat of further hazard-induced 
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-12

problems.

ÿ Assists, as appropriate, the animal care and control agency staff's

coordination of the preparedness actions that are needed to prepare for 

the evacuation of animals during catastrophic emergencies.

Mass Care 

Coordinator

ÿ Surveys buildings to select the safest and best possible for use as mass 

care facilities.

ÿ Prepares a list that identifies the buildings that have been selected for use as mass care 

facilities and the number of people that can be housed in each.

ÿ Compares mass care facility locations with potential hazards and

disaster conditions.

ÿ Prepares a resource list that identifies the agencies that are responsible 

for providing the resources (cots, blankets, beds, food, water, candles, 

medical and sanitation supplies, communication gear, backup power 

sources, etc.) required to set up and sustain operations in each mass 

care facility.

ÿ Makes provisions to ensure the following items are available in sufficient 

quantities for use in mass care facilities, when opened (these stocks may 

be pre-positioned or delivered at the time of need):

• Food supplies.

• Water and sanitary supplies.

• Clothing, bedding, and other supplies.

• First Aid/medical supplies, as appropriate.

ÿ Prepares necessary agreements to guarantee access to those nongovernment owned facilities that have been designated for mass care 

use during emergencies.
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-12

ÿ Designates a mass care facility manager and identifies staffing

requirements for each mass care facility.

ÿ Makes necessary arrangements to ensure mass care staff members are 

trained.

ÿ Prepares a manager's kit for the designated manager in each mass care 

facility.

ÿ Coordinates with the Emergency Manager and PIO to develop a public 

information program to make citizens aware of availability and location 

of mass care facilities.

ÿ Develops a mass care operations organization chart.

ÿ Manages mass care activities during emergencies.

ÿ Coordinates mass care activities with the Emergency Manager.

ÿ Assists, as appropriate, the animal care and control agency staff's 

coordination of the preparedness actions that should be accomplished in 

order to feed, shelter, and provide medical treatment for animals during 

and after catastrophic emergencies. 

Resource 

Manager

ÿ Manages and directs resource support activities during large-scale 

emergencies and disasters.

ÿ Chairs planning meetings for the function.

ÿ Ensures that resource listings and/or the resource database is current.

ÿ Ensures that necessary agreements and appropriate public information 

materials (e.g., regarding donations) are in place.

ÿ Coordinates resource planning activities with the Emergency Manager.
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-13

Education 

Department/

Superintenden

t of Education

ÿ Develops and periodically exercises a student evacuation plan.

ÿ Coordinates with the Evacuation Coordinator to work out arrangements 

to use school buses to transport school children and other evacuees.

ÿ Coordinates with the Mass Care Coordinator to work out

arrangements to use schools and/or their food stocks for mass care.

ÿ Coordinates with the Mass Care Coordinator for the transport of

school children to mass care facilities.

ÿ

Animal Care 

and Control 

Agency

ÿ (Note: In some jurisdictions the responsibilities assigned to this

organization may be performed by the State, non-profit, or volunteer 

organizations. For example, the State might assign the State

Veterinarian or someone from the Department of Agriculture to assume 

responsibility for this activity, whereas a local jurisdiction might assign 

responsibility to a governmental animal control department or contract 

with a non-profit or volunteer organization, such as the Humane Society 

or Society for the Prevention of Cruelty to Animals (SPCA).) 

ÿ Coordinates the services and assistance provided to the animal victims. 

Activities may include the protection, care, and disposal (if appropriate) 

of animal victims impacted by disasters. 

ÿ Coordinates preparedness activities with the appropriate public and 

private sector organizational representatives. These activities include 

planning that addresses provisions for protection of companion and 

farm animals, wildlife, animals in zoos and aquarium parks, animal

shelters, animal research facilities, university medical and animal science 

centers, pet stores, etc. Note that extensive coordination with

State/local agencies such as fish and game departments; farm bureaus; 

wildlife, natural resources, and agriculture departments; game wardens; 

the jurisdiction's Emergency Management Agency staff; the individuals 

tasked in the EOP to serve as the Evacuation and Mass Care 

Coordinators, PIO, Health and Medical Coordinator, Resource

Manager, etc. and other non-government organizational representatives 

from the ARC, Humane Society, American Veterinary Medical
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-14

Association, State veterinarians associations, veterinary technician 

associations, live stock and horse associations, kennel clubs, and other 

animal protection volunteer groups will be necessary to ensure the

needs of animals are met during disaster situations. 

ÿ Forms emergency response teams (evacuation, shelter, medical 

treatment, search and rescue, etc.) that includes trained professionals 

and volunteers to accomplish necessary actions during

response operations. Team members may include animal care and 

control staff, Humane Society staff, veterinarians, veterinary technicians, 

livestock inspectors, game wardens, farmers, kennel owners, volunteers 

from animal protection organizations, etc.

All Tasked

Organizations

("All tasked organizations" includes those identified above, and all other

government or private sector organizations that have been assigned tasking in 

the EOP to perform response functions.)

ÿ Maintain current internal personnel notification rosters and SOPs to 

perform assigned tasks.

ÿ Negotiate, coordinate, and prepare mutual aid agreements, as

appropriate.

ÿ Analyze need and determine specific communications resource

requirements.

ÿ Work with EOC communications coordinator to ensure equipment and 

procedures are compatible.

ÿ Identify potential sources of additional equipment and supplies.

ÿ Provide for continuity of operations by taking action to:

• Ensure that lines of succession for key management positions 

are established to ensure continuous leadership and authority for 

emergency actions and decisions in emergency conditions.
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-15

• Protect records, facilities, and organizational equipment deemed 

essential for sustaining government functions and conducting

emergency operations.

• Ensure, if practical, that alternate operating locations are

available should the primary location suffer damage, become 

inaccessible, or require evacuation. Alternate operating

locations provide a means to continue organizational functions 

during emergency conditions. 

• Protect emergency response staff. This includes actions to:

− Obtain, as appropriate, all necessary protective 

respiratory devices and clothing, detection and

decontamination equipment, and antidotes for personnel 

assigned to perform tasks during response operations.

− Ensure assigned personnel are trained on the use of

protective gear, detection and decontamination devices, 

and antidotes.

− Provide security at facilities.

− Rotate staff or schedule time off to prevent burnout.

− Make stress counseling available.

• Ensure the functioning of communications and other essential

equipment. This includes actions to:

− Test, maintain, and repair communications and warning 

equipment.

− Stockpile supplies and repair equipment.

Administration

and Logistics

This section covers general support requirements and the availability of services 

and support for all types of emergencies, as well as general policies for
Chapter 4: Basic Plan Content

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 4-16

managing resources. Mutual aid agreements should be referenced; authorities 

for and policy on augmenting staff by reassignment of public employees and 

soliciting volunteers, along with relevant liability provisions, should be 

addressed. The section should provide the jurisdiction's general policies on 

keeping financial records, reporting, tracking resource needs, tracking the

source and use of resources, acquiring ownership of resources, and

compensating the owners of private property used by the jurisdiction.

Plan 

Development 

and 

Maintenance

The overall approach to planning, including the assignment of planning

responsibilities, should be discussed in the Basic Plan. Statements should focus 

on the planning process, participants in that process, and how development and 

revision of different "levels" of the EOP (Basic Plan, annexes, appendices, and 

SOPs) are to be coordinated. This coordination task should be assigned to the 

appropriate person. Provision should also be made for a regular cycle of 

testing, reviewing, and updating the EOP.

Authorities 

and 

References

The Basic Plan should indicate the legal basis for emergency operations and 

activities. Laws, statutes, ordinances, executive orders, regulations, and formal 

agreements relevant to emergencies should be listed. The legal basis should 

include predelegation of emergency authorities, i.e., enabling measures sufficient 

to ensure that specific emergency-related authorities can be exercised by the 

elected or appointed leadership or their designated successors. It is important 

to specify the extent and limits of the emergency authorities granted to the 

“CEO,” the circumstances under which these authorities become effective, and 

when they would be terminated.

Citing reference materials--including related plans of other levels of government-

-can be valuable for indicating what has influenced the writing of the EOP. 

References also help reduce the size of an EOP by directing the user to the full 

text of procedures, data analyses, and other pertinent information.
page 5-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Chapter 5

Functional Annex Content

Content

Annexes are the parts of the EOP that begin to provide specific information and 

direction. Annexes should focus on operations: what the function is and who is 

responsible for carrying it out. While the Basic Plan provides information

relevant to the EOP as a whole, annexes should emphasize responsibilities, 

tasks, and operational actions that pertain to the function being covered. 

Annexes should cover, in general terms, the activities to be performed by

anyone with a responsibility under the function. An annex should identify

actions that not only ensure effective response but also aid in preparing for 

emergencies and disasters.

Annexes should clearly define and describe the policies, processes, roles, and 

responsibilities inherent in the various functions before, during, and after any 

emergency period. To ensure adequate planning for all appropriate

contingencies, it may be necessary to spend time projecting the consequences 

of various emergencies. This should not be restricted to those hazards found to 

be most threatening during the hazard analysis. For example, airplane crashes, 

while infrequent, can occur almost anywhere with little or no warning. The term 

"generic" has been used to describe these functional annexes that are generally 

applicable to all hazards. The generic annexes are critically important parts of 

the plan, since they must enable the jurisdiction to cope with any unforeseen 

emergency.

In general, the organization of the annexes parallels that of the Basic Plan. 

Specific sections can be developed to expand upon--but not to

repeat--information contained in the Basic Plan.

Functions To Include as Annexes

One of the more important things to be done early in the planning process is to 

select the functions that will be the subjects of separate annexes. These choices 

are influenced by such factors as the organizational structures of the State and 

local governments, the capabilities of the jurisdiction's emergency services
page 5-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

agencies, and the established policy or intentions with respect to the concept of 

operations. No single listing of functional annexes, therefore, can be prescribed 

for all jurisdictions.

The following list of functional annexes addresses core functions that warrant 

attention and may require that specific actions be taken during emergency

response operations:

ÿ Direction and Control

ÿ Communications

ÿ Warning

ÿ Emergency Public Information

ÿ Evacuation

ÿ Mass Care

ÿ Health and Medical Services

ÿ Resource Management

The fact that several functions are not included in the list does not mean that 

they are regarded as less important than the ones that are included. Each

jurisdiction's planning team should assess its own need for functional annexes. 

Additional or different functional annexes should be prepared at the discretion 

of the planning team. Typical candidate annexes include: damage assessment, 

search and rescue, emergency services, aviation operations, and radiological 

protection, among others. The primary concern is that all important activities be 

covered properly in the plan. The location or categorization of these activities is 

of secondary importance, though a State should strive for consistency among its 

jurisdictions to facilitate coordination.

Description of Core Functions 

The following attachments provide a brief description of each of the eight 

functional annexes listed above. They also outline the types of operational
Chapter 5: Functional Annex Content page 5-2

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

activity on which each annex should focus and, for consistency, follow the same 

general format as recommended for the Basic Plan. These functions are not 

prescribed, and the attachments are not sample annexes. 
page 5-A-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Attachment A

Direction and Control

Introduction

Direction and control is a critical emergency management function. During the 

applicable phases (pre-, trans-, and post-) of the emergency response effort, it 

allows the jurisdiction to:

ÿ Analyze the emergency situation and decide how to respond quickly, 

appropriately, and effectively.

ÿ Direct and coordinate the efforts of the jurisdiction's various response 

forces.

ÿ Coordinate with the response efforts of other jurisdictions.

ÿ Use available resources efficiently and effectively.

The manner in which the situation is managed will determine the effectiveness of 

the overall operation. Field forces (e.g., fire, law enforcement, public works, 

medical, etc.) can and usually do perform admirably in emergency situations. 

Where problems often arise is in the overall management of the operation: the 

merging of varying disciplines, organizations, and agencies not accustomed to 

working together on a day-to-day basis. Some jurisdictions may choose to 

address emergency services’ (fire, law enforcement, public works, etc.)

responsibilities for managing the response to emergency and disaster situations 

in separate annexes. Direction and control as presented here addresses all of 

the activities associated with managing the response and incorporates the

organizational tasking for these emergency services into a single functional

annex. The focus is on the critical operations the jurisdiction’s emergency 

response organization should perform in response to an emergency. 

Direction and control functions may well be long term in nature, changing

significantly as the situation moves from response to recovery. This function 

may be initiated immediately upon the onset of an event, such as when an
Attachment A: Direction and Control page 5-A-2

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

earthquake or tornado occurs, or develop gradually as the situation

deteriorates, such as when a hurricane or widespread flood occurs. 

Composition of the staff assigned to the direction and control function may

change significantly, as the situation progresses through the various stages of an 

emergency, into the recovery phase. Regardless of the phase or phases, 

direction and control is a vital function that must be performed when a

jurisdiction responds to any emergency situation. 

Developing a Direction and Control Annex

Suggested content to be addressed in a direction and control annex includes the 

following items.

Purpose This section provides overview information on the means the jurisdiction will use 

to direct and control those activities of government that are essential to saving 

lives, protecting property, and restoring government services during and

following emergency situations.

 

Situation and 

Assumptions

This section describes the environment that would trigger notification/activation 

of response personnel. It also describes the assumptions that are applicable to 

the emergency response organization. It may address capability limitations, 

resource shortfall, use of personnel or resources from outside of the jurisdiction 

(mutual aid) to augment the jurisdiction's response organization, or other things 

that directly impact on the ability of the jurisdiction to respond to emergency 

situations. A fundamental assumption is that the EOC will be operational

around the clock. 

Concept of 

Operations 

This section describes the direction and control relationships of tasked

organizations. It describes: 

ÿ The command structure, specifying who will be in charge during

emergency response operations.

ÿ The authorities of, and limitations on, key response personnel such as an 

IC.
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-3

ÿ How emergency response organizations will be notified when it is

necessary to respond.

ÿ The means that will be used to obtain, analyze, and disseminate

information (for decision-making, requesting assistance, reporting, etc.).

ÿ The relationship between the EOC and the Incident Command Post 

(ICP), when used.

ÿ The provisions made to coordinate and communicate among all the 

jurisdictions and agencies (to include all Federal response agencies) that 

may be involved in the emergency response.

Direction and 

Control Types

The emergency response command structure should be established before an 

emergency occurs. Once the response begins, there should be no confusion 

about who is in charge and who reports to whom. Agreeing on the command 

structure beforehand helps to ensure that all people involved understand their 

responsibilities and are ready to implement them when an emergency occurs.

Normally, jurisdictions use a centralized direction and control system, an onscene control system, or a combination of the two.

ÿ Centralized. This is the use of the EOC as a centralized management 

center to facilitate policy making, coordination, and overall direction of 

responding forces in large-scale emergency situations. The “CEO” of 

the jurisdiction or the appropriate designee directs all response and 

recovery activities from the EOC. This method is used by many

jurisdictions and is very useful in situations where the jurisdiction has 

received warning that, within a given time period (e.g., 72 hours), it may 

experience the effects of a specific threat (e.g., hurricane, riverine flood, 

etc.). In such situations there are a number of operational actions and 

measures that must be taken before the consequences of the disaster 

directly impact on the jurisdiction or an incident site is established. 

These include issuance of emergency information to the public,

suspension or curtailment of government and public services (health, 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-4

welfare, public safety, judicial, etc.; school and business closure;

cancellation of public events, etc.), evacuation actions, mass care

activities (to include set up and staffing of shelters to receive, feed, and 

care for evacuees). This method is also useful in situations where the 

jurisdiction is struck by a large-scale disaster (e.g., earthquake) that 

severely impacts the entire jurisdiction with little or no warning. In such 

situations, centralized direction of response organizations provides the 

“CEO” an opportunity to:

• Get a clear picture of the scope of the situation throughout the 

jurisdiction based on information received in the EOC. 

• Work closely with the appropriate representatives from the

emergency services organizations (fire, police, public works, 

health and medical) and other supporting agencies so that

response actions and activities can be prioritized based on the 

overall situation in the jurisdiction. 

• Redirect or adjust response actions and use of resources to 

meet the needs of disaster victims and protect property as the 

situation warrants. 

ÿ On-Scene Control System. While central control of the emergency 

response is critically important, the actions that actually minimize the 

impacts of the emergency event and save lives are performed by

responders in the field. Accordingly, an on-scene control system may 

be used instead of a centralized system. The on-scene control system 

vests the responsibility for the direction and control of all response 

actions with an individual that has responded to the scene of an

emergency. This “Incident Commander” or IC has authority to

coordinate the use of resources and personnel at the scene of an

emergency. In some communities, the highest ranking person from the 

jurisdiction on the scene, regardless of his or her agency, is responsible 

for incident command. Under this arrangement, a fire department 

official may direct fire, police, and personnel from the jurisdiction's other 

departments. Incident command responsibility may change as higher 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-5

level personnel arrive on the scene. In other communities, the individual 

designated to serve as IC may depend on the type of event (i.e., the IC 

will be from an agency responsible for that kind of event), management 

fiat, or statute.

Coordination is one of the key goals of planning for the field command 

structure. The response may involve personnel from several of the 

jurisdiction's agencies, employees from other nearby jurisdictions,

personnel from other levels of government, as well as volunteers. The 

mechanisms that will be used to coordinate the efforts of all of these 

different types of responders should be established before the

emergency occurs.

Federal HAZMAT regulations and a growing number of State laws 

mandate the use of an Incident Command System (ICS). ICS is 

designed around sound business practices that provide a common

framework for emergency response. ICS places a high degree of

importance on responder safety. The ICS system provides a

standardized means to command, control, and coordinate the use of 

resources and personnel at the scene of an emergency. Concepts and 

principles for ICS include: common terminology, modular organization, 

integrated communications, unified command structure, consolidated

action plan, manageable span of control, designated incident facilities, 

and comprehensive resource management. ICS concentrates direction 

and control actions on the field operations of the emergency services 

organizations that have responded to the scene of an emergency. ICS 

uses a top-down direction and control structure that includes five

functions: Command, Operations, Planning, Logistics, and

Finance/Administration. 

• Incident Command. ICS is “scene specific.” The function of 

the IC is to provide overall management at the incident site, 

including public safety and public information actions. The IC 

directs, controls, and orders resources, including people and 

equipment. (When more than one scene is involved, the ICs 

coordinate activities with the EOC.) The IC will develop a 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-5

management structure based on the needs of the incident as 

articulated in the incident action plan. A small, simple incident 

will have a small management structure. As incidents grow in 

size and complexity, the management structure grows

accordingly. 

• Operations. The operations function is coordinated by the 

Operations Section Chief who reports to the IC. Operations is 

responsible for the tactical actions at the incident site. All

tactical actions are performed in accordance with the Incident 

Action Plan.

• Planning. The planning function is coordinated by the Planning 

Section Chief who reports directly to the IC. The Planning

function is responsible for the collection, evaluation,

documentation, dissemination, and use of information about the 

incident, as well as the status of resources used or needed at the 

scene. The Planning Section is also responsible for preparation 

of the Incident Action Plan. For small incidents of short

duration this plan may be oral or written. Written action plans 

should be used: when resources from multiple agencies are

being used, when several jurisdictions are involved, or when the 

incident will require changes in shifts of personnel and/or

equipment. 

• Logistics. The logistics function is coordinated by the Logistics 

Chief who reports to the IC. The logistics function is

responsible for providing facilities, services, personnel,

equipment, and materials for the incident. 

• Finance/Administration. The finance/administration function is 

coordinated by the Finance Section Chief who reports to the 

IC. This function is responsible for the tracking of all incident 

costs, evaluating the financial considerations of the incident, and 

for any administrative duties not handled by the other functions.

• Command Staff and the Command Post. During response 

operations the IC and staff are located in the ICP. The IC's 

staff may include: 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-7

− A Safety Officer who is responsible for assessing the 

hazards response personnel may be exposed to and 

developing measures to ensure personnel safety. 

− An Information Officer who is responsible for

developing accurate and complete information

applicable to the incident, including cause, size, current 

situation, resources committed, and other matters of

general interest. This person also serves as the point of 

contact for the media and other governmental agencies 

which desire information directly from the incident

scene. 

− A Liaison Officer who is responsible for serving as a 

point of contact with organizations that are supporting 

the response effort, but not part of the command

structure located at the incident scene. 

From the ICP the Incident Commander directs all operations. 

The ICP can take various forms from a specially designed

vehicle to an identified emergency response vehicle and is

located as close to the scene as practical.

A detailed description of the Incident Command System can be found in the 

National Fire Academy’s NFA-ICS-SM, The Incident Command System, August 

1, 1989 and the Emergency Management Institute’s SM 307.1, Overview of the 

Incident Command System, April 1992. 

ÿ Transition. It is vital to understand that only one person can be "in 

charge" during response and recovery operations. Sometimes it is 

appropriate for an IC to be that person; at other times the critical

decisions must be made away from the site or before a defined incident 

site or sites are established, at the EOC. In the two situations given 

below, direction and control may transition from the scene(s) to the 

EOC or from the EOC to the scene(s). A direction and control annex 

should explain the direction and control system to be used. It should 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-8

clarify the relationship between the centralized command authority and 

the IC when both ICS and centralized methods of direction and control 

are used, and anticipate “shifts” in the location (incident site or EOC) 

and the individual (IC or “CEO”) responsible for decision-making.

• From EOC to Scene. For some emergencies, the establishment 

of an emergency scene (or "incident site") may not be possible 

or appropriate during the initial response phase. Also, several 

operationally related actions may be required to be completed 

before an emergency scene is established. Accordingly, many 

of the initial "response" actions that must be taken should be 

accomplished in the EOC. As the consequences of the

emergency situation become clearer and when a specific

emergency scene is defined, command may be transitioned to 

an IC that has responded to the scene. Once command

authority is transitioned to the IC, the EOC would provide 

support, and would not be responsible for operational decisionmaking.

• From Multiple Scenes to the EOC. As emergencies escalate 

into large-scale disaster proportions, more than one scene (and 

thus more than one IC) can become involved. As this happens, 

it is especially important for field operations to be coordinated 

through the EOC. Each IC is advised of the expanding scope 

of operations and is cautioned to be aware of the developing 

competition for resources. It is in setting priorities for the

allocation of scarce resources that the EOC may be said to 

“control” the response.

.

Interjurisdictiona

l Relationships

The concept of operations section should also address the formal arrangements 

that have been established to request assistance from or to provide assistance to 

other jurisdictions during emergency situations. The plan should be based on 

the concept that initial emergency response will, to the maximum extent

possible, be by the jurisdiction. Assistance needed will be obtained by

executing mutual aid agreements. Assistance to take care of other unmet needs 

should be referred to the State Emergency Management Agency (SEMA). If 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-8

still more assistance is needed beyond State capabilities, SEMA should

coordinate requests with the proper Federal agencies, including a request to 

FEMA for a Presidential declaration of an emergency or major disaster to allow 

supplemental Federal financial and technical assistance to be provided.

Organization 

and Assignment 

of 

Responsibilities

This section describes the specific direction and control responsibilities that are 

assigned to the tasked organizations. The following types of tasking may be 

assigned to the agencies, organization chiefs, and individuals listed in the left 

margin:

Chief 

Executive 

Official 

(“CEO”) 

ÿ Activates EOC (full or partial activation), when appropriate.

ÿ Directs tasked organizations to ensure response personnel report to the 

appropriate locations (EOC, emergency scene, work center, staging

area, etc.) in accordance with the organization's SOP.

ÿ When notified, reports to the EOC.

ÿ If appropriate, identifies and establishes contact with IC(s) in the field.

ÿ Provides overall direction of emergency response operations, until an 

emergency scene is established and an IC assumes this responsibility. 

(For emergency situations that occur with little or no warning, an IC 

may already have responded to the scene and taken charge before 

notification of the “CEO.”)

ÿ As appropriate, designates an IC to direct tactical operations at each 

emergency scene.

ÿ As appropriate, directs implementation of protective actions for public 

safety.

ÿ If necessary, directs EOC staff to relocate to the alternate EOC to 

continue operations.

ÿ When appropriate, terminates response operations and release

personnel.
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-9

Fire 

Department 

ÿ When notified of an emergency situation, sends response 

teams/personnel, equipment, and vehicles to the emergency site, staging 

areas, or other location, as appropriate.

ÿ Identifies an IC and establishes an ICP, if appropriate; assigns

appropriate personnel to IC staff.

ÿ Performs IC duties at the emergency scene, if appropriate.

ÿ Sends a senior representative to the EOC, when the EOC has been 

activated during an emergency.

ÿ Notifies the EOC of the situation if the original notification did not come 

from the EOC. 

ÿ Manages fire/rescue resources, directs fire operations, rescues injured 

people during emergency operations, and determines the need, as

appropriate, for evacuation of the immediate area in and around the 

emergency scene.

ÿ Assists as appropriate in the evacuation of people at risk in the

immediate area in and around the emergency scene.

ÿ Alerts all emergency response organizations of the dangers associated 

with technological hazards and fire during emergency operations.

Police 

Department

ÿ When notified of an emergency situation, sends response

teams/personnel, equipment, and vehicles to the emergency scene or 

other location, as appropriate.

ÿ Identifies an IC and establishes an ICP if appropriate; assigns

appropriate personnel to IC staff.
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-11

ÿ Performs IC duties at the emergency scene, if appropriate.

ÿ Notifies the EOC of the situation if the original notification did not come 

from the EOC.

ÿ Sends a senior representative to the EOC, when the EOC has been 

activated during an emergency.

ÿ Manages law enforcement resources and directs law enforcement

operations. Duties may include:

• Directing and controlling traffic during emergency operations.

• Assisting in the evacuation of people at risk in and around the 

emergency scene.

• Controlling access to the scene of the emergency or the area 

that has been evacuated.

• Providing security in the area affected by the emergency to 

protect public and private property.

• Conducting damage assessment activity (through use of aircraft, 

helicopter, or other police vehicles as appropriate).

EOC Manager (Normally, this job is performed by the jurisdiction's Emergency Manager.)

ÿ Immediately notifies the “CEO” of significant emergency situations that 

could affect the jurisdiction.

ÿ When directed by the “CEO,” or when circumstances dictate, notifies 

all tasked organizations, informs them of the situation, and directs them 

to take the action appropriate for the situation (report to EOC, scene of 

the emergency, stand by, etc.) in accordance with their organization's 

SOP.
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-12

ÿ Activates EOC when directed to do so by the “CEO” or when the 

situation warrants such action.

ÿ Manages EOC resources and directs EOC operations. Duties may 

include ensuring the following activities/actions are done:

• Information processing. This task involves the collection,

evaluation, display, and dissemination of information about the 

emergency situation to help support the jurisdiction's response 

operations. Information collection sources include, but are not 

limited to: emergency response organizations, media,

neighboring jurisdictions, State and Federal governments,

volunteer groups, private sector businesses, citizens, etc.

Typical tasks associated with information processing may

include:

− Maintaining a significant events log.

− Message handling.

− Aggregating damage information from all available

sources.

− Identifying resource needs.

− Preparing summaries on status of damage.

− Preparing briefings for senior management officials.

− Displaying appropriate information in the EOC.

− Preparing and submitting necessary reports when

required (re: situation, critical resource status, etc.),

including situation reports to the State EOC, as
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-12

appropriate.

• Coordinating logistical support for response personnel and

disaster victims.

• When directed by the “CEO,” or when conditions warrant such 

action, relocating staff to the alternate EOC in order to continue 

response operations.

• When directed by the “CEO,” terminating operations and

closing the EOC.

Public Works ÿ When notified of an emergency situation, sends response

teams/personnel, equipment, and vehicles to the emergency scene, 

staging area, or other location, as appropriate.

ÿ Identifies IC and establishes ICP, if appropriate; assigns appropriate 

personnel to IC staff.

ÿ Performs IC duties at the emergency scene, if appropriate.

ÿ Notifies the EOC of the situation if the original notification did not come 

from the EOC.

ÿ Sends a senior representative to the EOC, when the EOC has been 

activated during an emergency.

ÿ Manages public works resources and directs public works operations. 

Duties may include:

• Performing debris removal operations.

• Assisting in urban search and rescue (US&R) efforts.

• Conducting damage assessment activities (through the use of
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-13

vehicles, remote video equipment, etc., as appropriate).

• Providing emergency generators, fuel, lighting, sanitation to

support emergency responders at the emergency scene and at 

the EOC.

• Assisting in the evacuation of people at risk in and around the 

emergency scene.

• Coordinating with utility companies to restore power to disaster 

victims.

Emergency 

Manager 

ÿ Ensures appropriate staff members report to the EOC. 

ÿ Duties may include:

• Coordinating EOC operations.

• Staffing the Information Processing Section.

• Advising/briefing the “CEO” and other key members of the 

emergency response organization on the emergency situation.

• Recommending to the “CEO” actions to protect the public from 

the life threatening consequences associated with the emergency 

situations.

Public 

Information 

Officer (PIO)

ÿ When notified, reports to EOC or incident scene as appropriate.

ÿ Handles inquiries and informs the public about disaster damage,

restricted areas, actions to protect and care for companion animals, 

farm animals, and wildlife, and available emergency assistance.

ÿ Refer to Attachment D for additional operational tasking.
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-14

Health and 

Medical 

Coordinator

ÿ When notified of an emergency situation, sends a representative to the 

EOC, if appropriate.

ÿ Coordinates the health and medical treatment activities of all response 

organizations involved in providing medical assistance to disaster

victims.

ÿ Coordinates necessary mortuary services, to include operations of

temporary morgues, and identification of victims.

ÿ Collects information and reports damage/status of health and medical 

facilities and equipment to the EOC.

ÿ Refer to Attachment G for additional operational tasking.

Communications

Coordinator

ÿ Serves as a member of the EOC team.

ÿ Ensures the emergency communications section in the EOC is equipped 

with the appropriate communication gear.

ÿ Refer to Attachment B for additional operational tasking.

Warning 

Coordinator

(When practical, this individual should be permanently assigned to the EOC).

ÿ Develops and maintains a phone and/or radio frequency list for notifying 

emergency response personnel, neighboring jurisdictions, and the State 

EOC of an emergency situation.

ÿ Develops and maintains a phone list or other means for warning special 

locations, such as schools, hospitals, nursing homes, major industrial

sites, institutions, and places of public assembly.

ÿ Identifies public and private service agencies, personnel, equipment, and 

facilities that could be called upon to augment the jurisdiction's warning 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-15

capabilities.

ÿ Refer to Attachment C for additional operational tasking.

Evacuation 

Coordinator

ÿ When notified of an emergency situation, reports to the EOC, if

appropriate.

ÿ Coordinates implementation of evacuation actions with the appropriate 

tasked organizations.

ÿ Refer to Attachment E for additional operational tasking.

Mass Care 

Coordinator

ÿ When notified of an emergency situation, reports to the EOC, if

appropriate.

ÿ Coordinates implementation of mass care actions for the public with the 

appropriate tasked organizations.

ÿ Refer to Attachment F for additional operational tasking.

Resource 

Manager

ÿ When notified of an emergency situation, reports to the EOC, if

appropriate.

ÿ Coordinates implementation of resource management activities with the 

appropriate tasked organizations.

ÿ Refer to Attachment H for additional operational tasking.

Legal 

Department 

When notified of an emergency situation, sends a representative to the EOC, if 

appropriate.

Education 

Department 

ÿ When notified of an emergency situation, sends a representative to the 

EOC, if appropriate.
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-16

(School 

Superintendent) ÿ Protects students in school when an emergency situation occurs.

ÿ Evacuates students, if appropriate.

ÿ When directed by appropriate authority, closes school facilities and 

releases students.

ÿ When directed by appropriate authority, makes schools available for 

use as mass care facilities.

ÿ Conducts damage assessment of school facilities.

Jurisdiction 

Comptroller/

Clerk/Bookkeeper/Tax 

Assessor

ÿ When notified of an emergency situation, reports to the EOC, if

appropriate.

ÿ Provides the Resource Manager and the “CEO” summary briefings on 

status of financial transactions.

ÿ Maintains records of all financial transactions during response

operations.

ÿ Handles all procurement requests initiated by response organizations.

ÿ Establishes a procedure for the jurisdiction to accept "cash donations", 

where statute permits such action; however, jurisdictions may wish to 

avoid competing with non-profit organizations’ efforts to fund their 

activities.

ÿ Becomes familiar with the protocol and procedures required by the 

Stafford Act that are applicable to reimbursing the jurisdiction for 

eligible expenses associated with Presidentially Declared Disasters. 

ÿ Upon termination of the response effort, prepares the appropriate

reports that address costs incurred by the jurisdiction during the
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-16

emergency situations.

Military 

Department 

Provides personnel and equipment to support direction and control actions at 

the scene and/or the EOC (at the direction of the Governor).

Volunteer 

Organizations

When notified of an emergency situation, send a representative to the EOC, if 

appropriate.

Private Utility 

Companies 

When notified of an emergency situation, send a representative to the EOC, if 

appropriate.

Animal Care 

and Control 

Agency

ÿ When notified of an emergency situation, sends a representative to the 

EOC, if appropriate.

ÿ Manages public and private sector efforts to meet the animal service 

needs that arise including:

 

• Rescue and capture of animals that have escaped confinement 

and displaced wildlife. 

• Evacuation. 

• Sheltering. 

• Care of the injured, sick, and stray. 

• Disposal of dead animals. 

ÿ Activates emergency response teams (evacuation, shelter, medical

treatment, search and rescue, etc.) as needed.

ÿ Prepares a resource list that identifies the agencies/organizations that are 

responsible for providing the supplies (medical, food, and other

necessary items) needed to treat and care for injured and sick animals 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-18

during large-scale emergencies and disasters.

ÿ Coordinates response activities with the appropriate representative in 

the EOC (EOC Manager, Evacuation Coordinator, Mass Care

Coordinator, ARC, PIO, Health and Medical Coordinator, Resource 

Manager, etc.).

ÿ Coordinates the rescue of injured or endangered animals with fish and 

game departments, wildlife organizations, county cooperative extension 

offices, veterinarians, etc. 

Other 

Organizations

The organization and assignment of responsibilities section should list any other 

agencies/departments that have not been included in one of the above

categories and itemize the services they provide (e.g., coroner's office, airport 

authority, marine resources council, U.S. Department of Agriculture, emergency 

board, etc.).

All Tasked 

Organizations

ÿ Activate a control center to support and facilitate the organization's 

response activities (dispatch and manage personnel and resources,

maintain a significant events log, report information to the Information 

Processing Section at the EOC, coordinate with organizational

personnel at the emergency scene or EOC, etc.). 

ÿ If appropriate, send a representative to the EOC.

ÿ Establish a procedure to identify, and report to the Information

Processing Section in the EOC, damage to organizational resources and 

facilities. Additional tasking may include responsibility for reporting

damage to, or status of, critical facilities such as:

• Emergency service facilities and equipment (fire stations; police 

stations; custodial facilities, such as jails and juvenile detention 

centers, hospitals, and other health care facilities; rescue

squads; public works facilities, etc.).
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-19

• Communications networks (telephones, emergency service

radio systems, repeater sites and base stations, television and 

radio stations, etc.).

• Water supply system/facilities, to include waste water treatment.

• Utilities (power plants, substations, power lines, etc.)

• Transportation networks (roads, bridges, airports, rail terminals, 

maritime ports).

• Homes, businesses, public facilities, etc.

ÿ Where appropriate, ensure that organization staff member(s) tasked to 

work in the EOC during emergencies have authority to commit

resources and set policies.

ÿ Provide support to the IC, as required.

ÿ If appropriate, establish a protocol for interfacing with State/Federal 

responders. 

ÿ Coordinate with the PIO and clear press releases with the “CEO”

before releasing information to the media for public consumption.

Administration

and Logistics

This section addresses the support requirements of the direction and control 

function.

Administration This section specifies the records that are required to be maintained, identifies 

the organizations and agencies that have reporting responsibilities, indicates the 

frequency for reporting, and describes the types of reports that are to be 

submitted. Typical tasking may include:

ÿ Requirement for agency heads to submit reports to the EOC relating to 

their agency's expenditures and obligations during emergency

conditions. 
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-20

ÿ Requirement for the local government to submit daily situation, resource 

consumption, resource shortfall, etc. report(s) to the State EOC.

ÿ Requirement for the emergency management agency to report on the 

status of the mass care services being provided by volunteer agencies 

and other nongovernmental organizations.

ÿ The format for submission of reports or requests for assistance should 

be specified in accordance with the procedures established in an

appendix to the jurisdiction’s Direction and Control annex.

Logistics This section should address the arrangements that have been made to provide 

for the support needs (food, water, emergency power, fuel, equipment/supplies 

replacement, etc.) of the organizations performing direction and control

functions: 

ÿ Self-support. Each tasked organization is expected to provide its own 

logistical support during the initial phase (the first 24 hours) of response 

operations. Additional support should be obtained through the EOC, 

or the IC, as appropriate.

ÿ Agreements and Understandings. When local government resources 

prove to be inadequate during emergency operations, requests should 

be made to obtain assistance from other local jurisdictions, higher levels 

of government, and other agencies in accordance with existing or

emergency negotiated mutual aid agreements and understandings. Such 

assistance may take the form of equipment, supplies, personnel, or 

other available capabilities. All agreements and understandings should 

be entered into by duly authorized officials and should be formalized in 

writing.

Plan 

Development 

and 

Maintenance

This section should describe who is responsible for coordinating revision of the 

jurisdiction’s Direction and Control Annex, keeping attachments current, and 

ensuring that SOPs and other necessary implementing documents are

developed.

Authorities Authorities and references should be listed as appropriate.
Attachment A: Direction and Control

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-A-20

and 

References
page 5-B-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Attachment B

Communications

Introduction

This function focuses on the communications systems that will be relied upon 

during emergency situations. The total communications system is discussed in 

detail and procedures for its use are outlined.

Developing a Communications Annex

Purpose A communications annex provides information on establishing, using,

maintaining, augmenting, and providing backup for all of the types of

communications devices needed during emergency response operations.

 

Situation and 

Assumptions

The Situation portion of this section identifies some broad considerations that 

apply to the kinds of emergency conditions that could occur and would require 

the activation of emergency communications systems to support the

jurisdiction's response to the situation. 

This section also describes the assumptions that are applicable to the

communications system the jurisdiction will use during emergency operations. 

Typical assumptions may address:

ÿ Recognition of the fact that large-scale emergency operations usually 

require a communications capability beyond the normal capacities of the 

equipment of a local government. Therefore, the type required and 

sources (from the public and private sector) for the additional

equipment needed to support response operations should be identified 

as a fundamental activity associated with developing this annex of the 

plan.

ÿ Augmentation of local capability by higher levels of government.

ÿ The support provided by the local chapter of RACES. If RACES is 

not available locally, other public service and private organizations in the 
page 5-B-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

community should be approached. These include such agencies as local 

industry, taxi and transit companies, citizens band radio groups (e.g., 

REACT), and local service agencies.

ÿ Designation of specific response organizations to maintain operational 

control of their own communications systems, while coordinating with 

the EOC during emergency operations.

ÿ The spontaneous voluntary support of ham radio operators, radio clubs, 

and private organizations with sophisticated communications equipment.

Concept of 

Operations

This section should describe the methods used to communicate between the 

EOC, field forces at a specific incident scene (operating under ICS or another 

direction and control system), control centers of emergency response

organizations, mass care facilities (including shelters and feeding facilities),

radio/TV stations, hospitals and ambulance dispatch points, amateur

communications networks, adjacent jurisdictions and military installations, State 

EOC, and Federal and private sector organizations, as appropriate. It should 

address sourcing for primary and backup systems, the people that will operate 

the equipment, and detail the communications requirements for emergency

response organizations.

 

Organization 

and 

Assignment of

Responsibilities

This section describes the specific communications responsibilities that are

assigned to the tasked organizations. The following types of tasking should be 

assigned to the agencies, organization chiefs, and individuals listed in the left 

margin, below:

Chief 

Executive 

Official 

(“CEO”) 

Requires the Communications Coordinator to report to the EOC when notified 

of an emergency situation.

Communications 

Coordinator

ÿ When notified of an emergency situation reports to the EOC.

ÿ Manages the emergency communications section in the EOC and

supervise the personnel (radio, telephone and teletype operators, repair 

crews, runners, etc.) assigned to it.
Attachment B: Communications

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-B-2

ÿ Supports media center communications operations, as needed.

EOC Manager ÿ Activates communications section in the EOC.

ÿ Implements emergency communications procedures.

ÿ Ensures communications section of the EOC has the capability to 

sustain operations around the clock.

Communications

Section Team 

Members

ÿ When notified, report to the EOC, staff the communications section, 

and operate assigned communications equipment.

ÿ Follow established procedures and radio protocol for voice

transmissions and message handling.

ÿ Screen and log information when appropriate, and route incoming calls 

to the appropriate section in the EOC.

Military 

Department

Provides communications support to include personnel and equipment (as

directed by the Governor).

All Tasked 

Organizations

This includes the organizations (Fire Department, Law Enforcement, Public 

Works, EOC, Emergency Management Agency, PIO, Health and Medical, 

etc.) that are directly involved or support emergency response operations. 

During emergency operations, all departments should:

ÿ Maintain their existing equipment and follow established procedures for 

communicating with their organization personnel performing field

operations. All organizations should keep the EOC informed of their 

operations at all times and maintain a communications link with the 

EOC.
Annex B: Communications

SLG 1-XX: Guide for All-Hazard Emergency Operations Planning (3/96)

page 5-B-3

ÿ Provide backup communications capabilities for the EOC.

ÿ Provide a backup communications link between the EOC and mass 

care facilities, as needed, through use of mobile and portable radio 

units.

ÿ Activate backup or alternate communications systems, as necessary.

ÿ Maintain emergency communications systems as long as necessary.

ÿ When practical, protect equipment against lighting strikes and

electromagnetic pulse (EMP) effects.

ÿ Phase down operations, as appropriate.

ÿ Clean, repair, and perform maintenance on all equipment before

returning to normal operations or to storage.

Administration

and Logistics

This section addresses the support requirements of the communications

function.

Administration ÿ This section addresses the administrative actions associated with

satisfying the tasking in this annex. Specific areas to be addressed 

include:

• Record and report preparation and retention.

• Accounting and reimbursement procedures. For example,

submit communications expenditure statements to appropriate 

authorities for reimbursement.

• Reference to the phone lists and radio frequencies in the SOP 

that should be followed to notify emergency personnel during 

emergency situations.

Logistics This section addresses general support requirements. Specific areas to be 

addressed include: communications agreements with private organizations,
Attachment B: Communications

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-B-4

mutual aid agreements with neighboring jurisdictions, and provisions to have 

damaged communications equipment repaired or replaced.

Plan 

Development 

and 

Maintenance

Authorities 

and 

References

This section should identify who is responsible for coordinating revision of the 

jurisdiction’s Communications Annex, keeping its attachments current, and

ensuring that SOPs and other necessary documents are developed.

Authorities and references should be cited as appropriate.
page 5-C-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Attachment C

Warning

Introduction

This function deals with the dissemination to the appropriate government

officials and the public timely forecasts of all hazards requiring emergency

response actions. This warning information is vital and must be made available 

in order to ensure that emergency responders and the public take appropriate 

protective actions to avoid death, injury, and/or damage to property. 

Developing a Warning Annex

Purpose A warning annex describes the warning systems in place in the jurisdiction and 

the responsibilities and procedures for using them. All components of the 

system should be identified and the provisions that have been made to

implement warning described.

Situation and 

Assumptions

This section identifies some broad considerations that apply to the kinds of

emergency conditions that could require the activation of emergency warning 

systems. It identifies the warning sites that will be relied upon to alert

emergency responders and warn the public. 

This section also describes the assumptions that are applicable to the warning 

systems the jurisdiction may use during emergency operations. Typical are

assumptions that:

ÿ Some people who are directly threatened by a hazard may ignore, not 

hear, or not understand warnings issued by the government. 

ÿ Special needs groups such as the hearing-impaired, sight-impaired, 

physically disabled, or institutionalized (e.g., in mental treatment

facilities, jails/prisons/detention facilities, etc.) require special attention to 

ensure a workable warning system is established.

ÿ Emergency response organizations such as the fire and police may be 

called upon to help warn the public.
page 5-C-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

ÿ Where available, EAS stations will be used to help disseminate warning 

information.

ÿ Radio/TV stations which are not members of the EAS station network 

will be willing to issue warning announcements.

ÿ Where available, National Oceanic and Atmospheric Administration 

(NOAA) Weather Radio stations will disseminate watches and

warnings issued by the NWS; NOAA tone alert radios are

automatically activated when such watches and warnings are issued.

Concept of 

Operations

This section of the annex provides general information on how warnings will be 

given within the jurisdiction and in cooperation with other jurisdictions.

General This section:

ÿ Describes the methods used to notify key government officials and 

emergency response organizations.

ÿ Describes the methods and warning devices used to disseminate

emergency alerts and warnings to the public for the types of hazards 

that threaten the jurisdiction. 

ÿ Identifies types of warning devices (sirens, EAS stations, telephone, 

tone alert radios, route alerting, etc.) used in the jurisdiction and

specifies their location, and the geographic area each device covers.

ÿ Describes the procedures for warning special locations, such as

schools, hospitals, nursing homes, recreational facilities, major industrial 

sites, institutions, and places of public assembly.

ÿ Describes the special procedures required to warn the hearingimpaired and non-English speaking groups. 

ÿ Defines the meaning of all warning signals.
Attachment C: Warning

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-C-3

Interjurisdictiona

l Relationships

This section:

ÿ Describes the arrangements that have been made (when appropriate) to 

alert/warn the emergency response organizations and public in

neighboring jurisdictions.

ÿ Describes the arrangements that have been made with the emergency 

management organizations in nearby jurisdictions, industrial complexes, 

and military facilities (in or near the jurisdiction) that use, produce, 

store, or transport hazardous materials (HAZMAT) to immediately alert 

the jurisdiction's EOC when an emergency situation involving

HAZMAT occurs.

Organization 

and Assignment 

of 

Responsibilities 

This section describes the specific warning responsibilities that are assigned to 

the tasked organizations. The following types of tasking may be assigned to the 

agencies, organization chiefs, and individuals listed in the left margin below:

Chief 

Executive 

Official

(“CEO”)

ÿ Specifies who has authority to order activation of warning systems to 

include EAS.

ÿ Assigns a single organization the responsibility for activation of the

various warning systems in the jurisdiction. The organization must be 

able to initiate the warning systems around-the-clock. In many

jurisdictions the EOC has this responsibility.

ÿ Designates public service agencies, personnel, equipment, and facilities 

that can augment the jurisdiction's warning capabilities.

Warning 

Coordinator

ÿ When notified of an emergency situation, reports to the EOC.

(However, when practical, this individual should be permanently

assigned to the EOC.)

ÿ Implements call down rosters to alert emergency responders or provide 

situation updates.
Attachment C: Warning

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-C-4

ÿ Activates public warning systems to include EAS.

ÿ Implements contingency plans to provide warnings if established

warning system fails to work.

ÿ Coordinates warning frequencies and procedures with EOCs at higher

levels of government and with adjacent communities.

ÿ Works with the PIO to ensure pertinent warning information is provided 

to the print media for distribution to the public.

EOC Manager ÿ Activates warning section in the EOC.

ÿ Ensures emergency warning systems are activated when directed to do 

so.

ÿ Issues cancellation of warning notice or otherwise ensures emergency 

responders and the public are aware of the fact that the emergency 

situation is terminated.

All Tasked 

Organizations

ÿ Upon receipt of a warning message or signal, initiate internal

organization notification actions to:

• Alert employees and volunteer augmentees assigned emergency 

response duties to the emergency situation.

• As appropriate to the situation:

− Suspend or curtail normal business activities.

− Recall essential off-duty employees.

− Send non-critical employees home. 
Attachment C: Warning

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-C-5

− Evacuate the organization's facilities.

ÿ If appropriate, augment the EOC's effort to warn the public through the 

use of vehicles equipped with public address systems, sirens, employees 

going door to door, etc. 

Administration

and Logistics

This section addresses the administrative and general support requirements

associated with the warning function.

Administration Specific administrative areas to be addressed include:

ÿ Reference or attach as an appendix the SOP document that contains the 

phone lists and radio frequencies of emergency personnel to be notified 

at the declaration of emergency.

ÿ Attach as an appendix charts or maps that depict the warning system 

and the area covered by it.

Logistics Specific logistical support requirements to be addressed include:

ÿ Provisions to test and maintain equipment used to disseminate warning.

ÿ Provisions to get damaged warning equipment repaired or replaced. 

This equipment includes tone alert radios, sirens, horns, EAS, radio/TV, 

public address (PA) systems, etc.

ÿ Negotiating an agreement for use of private service agencies, personnel, 

equipment, and facilities to augment the jurisdiction's warning

capabilities.

ÿ If multiple incidents develop, ensure that each IC has adequate warning 

equipment should it be necessary to notify the public in the vicinity of 

any desired response.

Plan 

Development 

This section should identify who is responsible for coordinating revision of the 

jurisdiction’s Warning Annex, keeping its attachments current, and ensuring that 
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-1

and 

Maintenance

SOPs and other necessary implementing documents are developed.

Authorities 

and 

References 

In addition to the appropriate authorities this section could include references to 

agreements with media and any plans and procedures developed with them 

(e.g., EAS plans).

Attachment D

Emergency Public Information

Introduction

EPI's Public The EPI function gives the public accurate, timely, and useful information and 

instructions throughout the emergency period. The EPI organization initially

focuses on the dissemination of information and instructions to the people at risk 

in the community. However, the EPI organization also must deal with the wider 

public's interest and desire to help or seek information. People may call to find 

out about loved ones. They may call to offer help, or simply send donations. 

They may even urge Federal action. Good, timely information can help prevent 

overloading a jurisdiction's communications network, its transportation

infrastructure, and its staff.

 

EPI and 

Warning

Some jurisdictions use a single annex for warning and EPI. Warning can be 

treated as one phase of informing the public, depending on the hazard.

For some hazards (e.g., nuclear power plant accidents), a jurisdiction may have 

only a few minutes to alert those at risk. Pre-scripted information must go out 

with the initial warning. EPI also follows up with what is happening, what the 

response organization is doing, and what else the public should do for its safety. 

 For other hazards (e.g., hurricanes), the media can get the public's attention 

days in advance. EPI can feed preparedness information into an established 
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-2

media-public link, and give updates to the media and the public after impact. 

For still other hazards (e.g., an earthquake), there may be no useful warning. 

The hazard event itself gets the public's attention, and EPI follows (e.g., after an 

earthquake, to help prepare the public for aftershocks). 

In this Guide's approach, a warning annex focuses on the specialized system 

and procedures the jurisdiction's government uses to learn of imminent danger 

and to alert those at risk quickly, before impact. An EPI annex deals with 

developing messages and accurate information for the public, getting the

information out, and monitoring how the information is received throughout the 

emergency period. The warning system is one means for an EPI organization to 

get information out, and an EPI annex must address coordination with those 

responsible for the warning system.

EPI and 

Media 

Relations

For its information and instructions to reach area residents, an EPI organization 

must develop ties to all media in--or around--the jurisdiction. These ties usually 

carry over from strictly EPI matters (when government has something to say or 

show and needs the media to relay it) into news coverage (when the media have 

to relay their stories and need government to say or show something). For most 

jurisdictions, media relations become a natural extension of the EPI function--all 

part of a PIO’s job.

When media relations are limited to local media, this usually is not a problem. 

Local media, like the EPI organization, remain after the emergency. They share 

concern for the community's welfare, and they answer to the community for the 

service they provide. Local media, being sensitive to community needs, can 

work with the PIO to focus on strict EPI concerns and attend to news as time 

and circumstance permit.

Media relations become a challenge when the demand for news coverage 

overwhelms an EPI organization's ability to perform its basic mission: to provide 

timely, accurate, and useful information and instructions to area residents. This 

can happen when national media, and many "local" media representatives from 

outside the area, converge on the jurisdiction. 

This Guide's approach is to treat media relations as a part of the PIO's job 

(since the EPI organization needs the media to get information out), and to 
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-2

recommend that an EPI annex treat media convergence as a contingency to be 

planned for--not as the principal concern of the EPI organization. 

Developing an EPI Annex

Purpose An EPI annex describes the means, organization, and process by which a 

jurisdiction will provide timely, accurate, and useful information and instructions 

to area residents throughout an emergency.

Situation and 

Assumptions

This section should describe the planning environment for the EPI function and 

show what uncertainties have been treated as fact. Planners might consider the 

following:

Situation ÿ General. A situation section should list the hazards that face the

jurisdiction. It should note which types of emergency (if not all) would 

require activation of the EPI response organization. If a given hazard 

requires special planning provisions, the section should mention that 

hazard-specific appendices have been developed for the annex. 

ÿ Means of Dissemination. A situation section should give relevant facts 

about the means available to the jurisdiction for transmitting EPI. 

Relevant facts include:

• Identified Resources. The section should describe the

principal means by which EPI will be disseminated (EAS;

television, radio, and cable outlets not participating in EAS; 

newspapers and specially printed material). A listing of these 

should be attached to the annex and address hours of operation 

for radio/TV/cable stations, circulation (morning/ evening,

daily/weekly) of newspapers, language covered, and points of 

contact (day/night/weekend). The section also should describe 

what back-up means can be used (vehicle-mounted public 

address systems, door-to-door).

 

• Coverage. The section should describe the area covered by 

broadcast stations and give at least a rough idea of audience 

access to cable and newspapers (e.g., number of subscribers). 
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-3

 

• Vulnerability. The section should note how the means for 

disseminating EPI could be harmed by hazards that face the 

jurisdiction. (The section can reference maps and/or any similar 

discussion in the jurisdiction’s Warning Annex.) Contact with

the means of dissemination also should be addressed, if the 

jurisdiction relies only on the telephone system.

• Dependency. Along with vulnerability, a local EPI annex 

should note any dependency on out-of-town media (e.g.,

printers and newspapers). 

ÿ Audience. A situation section should give relevant facts about the

audience for EPI. Relevant facts include:

• Special Needs Groups. The section should list the

jurisdiction's non-English speaking groups in excess of some 

planning threshold (e.g., five percent of population) and note the 

foreign language media that could be used to communicate with 

these groups. It also should note other factors that affect

people's ability to receive, act on, or understand EPI. These 

might include sight or hearing impairments, being in custodial 

institutions (e.g., schools, nursing homes, hospitals, etc.), or

being unfamiliar with the area and its hazards (as is the case with 

tourists).

• Preparedness. The section may note whether ongoing public 

preparedness campaigns are conducted and whether printed 

material is available in telephone books, at key locations, or 

from community groups to which it has been distributed.

Assumptions ÿ Media. Relevant assumptions about the media include:

• Local Cooperation on EPI. Local media will cooperate in 

placing the community's need for EPI ahead of the need for 

news coverage, at least in the initial warning and response phase 
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-5

of an emergency. (As appropriate, written agreements for

commercial broadcast media to disseminate EPI may be

prepared.)

• External Media Interest. Some events, or even forecast

events, can bring many reporters, photographers, and camera 

crews to an area; this will create heavy demands on the EPI 

organization, requiring augmentation. External media will be 

interested less in details than in spectacle and "human interest" 

stories of universal appeal and quick impact. 

ÿ Audience. Relevant assumptions about the audience may address: 

• Preparedness. The section may note what level of

preparedness is assumed. Public awareness campaigns will not 

have been 100 percent effective, especially in jurisdictions with 

many tourists and transients. 

• Demand for Additional Information. People will want more 

information and will call to get it if possible.

Concept of 

Operations

The concept of operations section provides general information on how EPI is 

to be disseminated to the public. It describes policies, protocols, and a

sequence of activity.

General This section should address who activates the EPI organization, how the

organization is notified, and where personnel should report (e.g., the EOC). It 

should set forth priorities for EPI activity: production and dissemination of EPI, 

response to public inquiry, monitoring and rumor control, and media relations. 

It also should set forth a jurisdiction's policy to have a single release point for 

EPI (such as a public information center), to focus EPI on specific emergencyrelated information, and to provide positive and reassuring information when 

possible.

Phased 

Activity

ÿ Increased Readiness (e.g., Forecast Event). 
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-5

• Actions. Following are actions that may be taken with more 

than a day's notice. The list is not all-inclusive.

− Coordinate with “CEO,” Evacuation Coordinator,

Mass Care Coordinator, and Warning Coordinator to 

determine status of plans and timing of actions.

− Establish and maintain contact with media. Provide

preparedness information and any instructions, as

cleared by “CEO.”

− Arrange for accelerated printing of camera-ready EPI 

material (e.g., evacuation instructions/maps and Family 

Protection Program leaflets), if needed to

supplement/restock existing print material.

− Ensure distribution of printed material to broadcast

media, to preselected locations (e.g., grocery stores), 

and/or via newspaper. 

− Monitor media.

− Augment public inquiry and/or media relations staffs, if 

needed. Set up any additional facilities for EPI

operations (e.g., separate telephone bank or media

center) with support from the Communications

Coordinator.

• Message Content. Following is suggested general content for 

pre-impact messages. These will depend on the amount of time 

available for action and on the particular hazard. Hazardspecific information and instructions should be appended to the 

annex. 

− Hazard. 

− Estimated area and time of impact.
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-6

− Property protection measures (e.g., sandbagging, taping 

windows).

− Disaster supply kit for surviving 72 hours.

− Evacuation instructions (departure time, routes, mass 

care facility locations, etc.), if feasible to evacuate. 

− Instructions on how to protect and care for young

children, pregnant women, and senior citizens.

− Instructions on how to protect and care for companion 

and farm animals (location of animal shelters, provisions 

and requirements--e.g., use of leashes or cages--for 

transport of companion animals, etc.)

− Other "do's and don't's" if not feasible to evacuate, such 

as stay indoors, close all doors and windows, etc.

− How (and how often) government will be in touch with 

the public during the emergency.

− Telephone numbers for specific kinds of inquiry (if

staffed).

ÿ Limited Warning Available. 

• Actions. Following are EPI actions that may be taken with 

limited notice. The list is not all-inclusive.

− Coordinate with “CEO" and Evacuation Coordinator to 

determine what protective action will be taken, (limited) 

evacuation or in-place shelter.

− Complete "stand-by" EPI instructions with particulars of 

the event. Coordinate with Warning Coordinator to 

ensure warning system (e.g., EAS, route alerting, door-
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-7

to-door canvassing) is activated and ensure EPI is being 

disseminated.

− Contact media to repeat and update initial warning

(especially if not provided through EAS) and provide 

EPI contact name(s) and telephone number(s).

 

− Monitor media.

• Message Content. Following is suggested general content for 

pre-impact messages with limited warning available. Again,

these will depend on the particular hazard. Hazard-specific 

information and instructions should be appended to the annex.

− Hazard; kind of risk posed to people and property.

− Area at risk and predicted time of impact.

− Protective action instructions. These may address

specific groups (e.g., parents with school children in the 

area) as well as the general pubic.

− Reference to any useful information at-hand (e.g., in 

telephone book).

− What government is doing or will do.

− How (and how often) government will be in touch with 

the public during the emergency.

ÿ After Impact.

• Actions. Following are EPI actions that may be taken after the 

impact of an emergency. The list is not exhaustive.

− Establish and maintain contact with media. Provide 

information and any instructions, as cleared by “CEO” 

or his/her designee.
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-8

− Monitor media reports and telephone inquiries for

accuracy and respond as appropriate to correct

rumors.

− Augment public inquiry and/or media relations staffs, if 

needed. Set up any additional facilities for EPI

operations (e.g., separate telephone bank or media

center) with support from the Communications

Coordinator.

− Arrange for printing of camera-ready EPI material (e.g., 

Family Protection Program leaflets and health and

safety instructions), if needed.

− Ensure distribution of printed material to broadcast

media, to preselected locations (e.g., grocery stores), to 

volunteer groups or other response and recovery

personnel that may go into residential areas, and/or via 

newspaper.

− Compile chronology of events.

• Message Content.

− Current situation assessment.

− Current government actions.

− Survival instructions (for those affected or still

potentially affected).

− How/where to get what help (for those affected).

− Health hazards information.

− How/where to get help for companion and farm
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-9

animals.

− Restricted areas (for those not affected). 

− Telephone number for inquiries regarding survivors.

− What to do and whom to contact in order to offer help.

− Telephone number for donations offers and inquiries, 

accompanied by donations policy (send money and

make check payable to..., critical needs include X but 

please don't send Y..., package donations such and 

such way). 

− How and how often government will be in touch with 

public during the emergency.

− Instructions for evacuees to return home.

Internal 

Coordination

The concept of operations section should address how the jurisdiction will

coordinate EPI in order to "speak with one voice." The section should provide 

for one PIO and alternate, designated by the “CEO,” for dissemination of

official EPI and instructions through the media to the public. It should provide 

for management of EPI out of one location. It should provide for coordination 

between individual agencies' public affairs officers and the PIO. It also should 

provide for coordination between public affairs officers dispatched to the scene 

of event and the central location for EPI (e.g., briefings before the public affairs 

officer goes to the scene and regular contact thereafter). Coordination must 

include procedures for verifying and authenticating information, and for obtaining 

approval to release information. 

The concept of operations section also should address how the jurisdiction will 

deal with media convergence. (This could be by reference to a separate

appendix to the annex.) Provision should be made for possible transfer of some 

duties to the Office of the Chief Executive (in jurisdictions where there is a press 

secretary, for example), use of a trained local media person to help with out-oftown media (where resources are more limited), or obtaining assistance from 
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-10

another level of government's public information staff. Provision should be 

made for establishing a separate media center, if EOC briefing space is

inadequate. Provision also should be made for credentialing media

representatives and for coordinating with law enforcement to allow media

access to the scene (if it is safe to do so). The section should make clear who 

decides to implement such provisions.

Interjurisdictiona

l Coordination

Local-Local. The concept of operations section should address coordination 

between city and county, or between local jurisdictions that rely on the same 

media resources. 

Local-State. State law and plans define the framework for local and State 

coordination on EPI. States and localities should consider how they will

coordinate in emergencies with or without a Governor's declaration of

emergency. This may include support for media relations. 

Local-State-Federal. In disasters that threaten to overwhelm a State's

capability to respond and support its local governments, the Federal

Government may be asked to deploy to the affected State under the FRP. The 

FRP calls for maximum coordination of agencies' information releases through a 

Joint Information Center (JIC) to ensure consistency and accuracy. The JIC is 

a single location where the media have access to information and the public 

affairs personnel of various agencies can consult with one another. The

resources of the JIC are made available to State, local, and voluntary agencies 

so that all levels of government may conduct public information activities

together. This is the best way to ensure that local, State, and Federal officials 

are using the same information and are not making inconsistent statements. If a 

single local-State-Federal JIC is not a viable option, public affairs personnel, 

decision-makers, and news centers are to be connected by electronic mail, fax, 

and telephone in a "Joint Information System" (JIS). In a JIS, releases of 

information should be coordinated to ensure that everyone is using the most 

recent and accurate data.
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-11
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-12

Organization 

and 

Assignment of 

Responsibilities

The EPI organization should be depicted in a chart. The organization may be 

built around distinct areas of responsibility (e.g., information gathering and

production, monitoring and rumor control, public inquiries, and media relations). 

 It is not always necessary for each "box" to be filled by a different person; it is 

necessary to be able to staff each "box" to meet increased demands on the EPI 

organization (e.g., for public inquiries or media relations). Charts can reflect 

augmentation. See Figure 5-D-1. The following types of tasking may be 

assigned to the agencies, organization chiefs, and individuals listed in the left 

margin below:

Chief 

Executive 

Official

(“CEO”)

ÿ Serves as primary spokesperson before media, or delegates function to 

PIO.

ÿ Gives final approval to release of emergency instructions and

information, or delegates function to PIO.

ÿ In cases where Incident Command has been established, provides

policy guidance on the transfer of authority to release information from 

the ICP to the EOC should the incident exceed a predetermined level.

ÿ Designates location for media briefings (e.g., EOC conference room).

ÿ Approves implementation of any special provisions for media

convergence.

Public 

Information 

Officer

(PIO)

ÿ Manages all aspects of EPI on behalf of “CEO.”

ÿ Assumes EPI functions delegated by “CEO.”

ÿ Ensures timely preparation of EPI materials and their dissemination.

ÿ Ensures that public is able to obtain additional information and provide 

feedback (e.g., with hotline for public inquiries). 

• May establish center for disaster welfare information, and
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-13

cooperate with any Disaster Welfare Information (DWI)

services provided by the ARC.

• Coordinates with appropriate officials (Mass Care Coordinator, 

Health and Medical Coordinator, etc.) to obtain necessary

information. 

ÿ Ensures gathering of necessary information and timely preparation of 

news releases.

ÿ Briefs public affairs officers who go to the incident site.

ÿ Schedules news conferences, interviews, and other media access

(subject to any special media convergence provisions).

ÿ Supervises the media center.

ÿ Assigns print and broadcast monitors to review all media reports for 

accuracy.

ÿ Coordinates rumor control activity.

ÿ At the request of the Resource Manager, obtains media assistance in 

disseminating information to potential donors on unmet needs, items that 

are not needed and should not be donated, cash donations policy, and 

other donations-related matters.

ÿ Maintains a chronological record of disaster events.

Emergency 

Manager

ÿ Advises “CEO” on when to disseminate emergency instructions to the 

public.

ÿ Assists the PIO with news releases and rumor control.

EAS Stations ÿ Store "canned" EPI messages (other than warnings) and disseminate this 

information at the PIO's request.
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-14

ÿ Disseminate information when requested to do so by “CEO” or his/her 

designee.

Local Media 

Organizations

ÿ Store/maintain advance emergency packets for release at the PIO's 

request.

ÿ Verify field reports of emergency's development with PIO.

ÿ Cooperate in public education efforts.

Chief School 

Official

Disseminates emergency information to school population as appropriate.

Resource 

Manager

ÿ Provides PIO with unmet needs requests from Donations Team to be 

solicited from businesses and the public, as well as other donationsrelated information.

Voluntary 

Organizations

ÿ Provide support to public inquiry telephone lines, as requested by PIO.

ÿ Provide support in disseminating printed EPI material, as requested by 

PIO.

All Tasked 

Organizations

ÿ Provide information as requested by PIO.

ÿ Clear all emergency-related news releases with the jurisdiction's PIO.

ÿ Provide public affairs officers to support EPI activities, as requested by 

PIO.

ÿ Refer media inquiries to PIO.
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-15

Administration 

and Logistics

The administration and logistics section addresses the administrative and general 

support requirements for the EPI function.

Administration The section should address reporting and information flow for the EPI function, 

or reference the relevant SOPs. Common reports from EPI would include 

press coverage summaries and/or clips, public reaction and concerns (based on 

telephone inquiries or even post-disaster "town meetings"), and a final

chronology of events.

Logistics ÿ Staffing. The section should indicate how a "core" EPI staff is to be 

augmented to handle a surge in the public's and the media's demands for 

information. 

ÿ Facilities and Equipment. The section should describe what facilities 

are to be used for EPI and where they are located. The basic facility is 

the EOC and its conference room or media center. Other possible 

facilities would be a telephone bank and a separate, larger media

center. The section should describe how additional facilities will be 

obtained, and who obtains them. SOPs should be developed for setting 

up these facilities and referenced here. The section also should describe 

special equipment needs for EPI facilities and how they will be met.

ÿ Suppliers/Agreements. The section should reference agreements with 

suppliers (e.g., printers). An attachment to the annex should list day 

and night points of contact for such suppliers, as well as for media 

outlets.

Plan 

Development 

and 

Maintenance

This section should describe who is responsible for coordinating revision of the 

jurisdiction’s EPI Annex, keeping its attachments current, and ensuring that 

SOPs and other necessary implementing documents are developed.

Authorities 

and 

References

Authorities would include the jurisdiction's emergency management statute or 

ordinance. References might include 47 CFR , Part 73, Subpart G,

Emergency Alert System, as amended; the Local Area or State EAS Plan; and 

supporting SOPs. FEMA and the ARC have also produced several useful
Attachment D: Emergency Public Information

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-D-15

Family Protection Program brochures, as listed in the bibliography. These 

could be referenced if used.
page 5-E-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Attachment E

Evacuation

Introduction

This function deals with the movement of people to a safe area, from an area 

believed to be at risk, when emergency situations necessitate such action.

Developing an Evacuation Annex

Purpose An evacuation annex describes the provisions that have been made to ensure 

the safe and orderly evacuation of people threatened by the hazards the

jurisdiction faces. 

Situation and 

Assumptions

This section identifies the emergency conditions that could occur and that would 

require evacuation. It identifies the areas potentially subject to evacuation

(areas prone to flooding, seismic activity, or wildland fire; areas located near 

facilities that use, store, produce, or transport hazardous materials; etc.). Any 

site-specific evacuation plans and maps should be appended to the annex. This 

section identifies the population groups requiring special assistance during

evacuation, e.g., the elderly and persons with disabilities.

This section also addresses the unknowns of the emergency situation that are 

associated with evacuation. Assumptions made should focus on the probable 

operational situations under disaster conditions, cover unanticipated

contingencies, and establish the parameters within which the planning for 

evacuation will take place. Typical are assumptions that:

ÿ The annex focuses on hazards that provide sufficient warning time to 

implement a planned evacuation for people identified as being at risk in 

the jurisdiction. 

ÿ Spontaneous evacuation will occur when there is sufficient warning of 

the threat. Between 5 and 20 percent of the people at risk will

evacuate before being directed to do so.

ÿ Some people will refuse to evacuate, regardless of the threat.
page 5-E-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

ÿ Some owners of companion animals will refuse to evacuate unless 

arrangements have been made to care for their animals.

ÿ Roughly 20 percent of the population at risk will require shelter in a 

mass care facility. (This figure should be adjusted based on any

behavioral studies conducted in the jurisdiction.) Many evacuees will 

seek shelter with relatives, friends, or motels rather than use

government-provided mass care facilities.

ÿ Where available, military support (as approved by the Governor) will 

be available to support evacuation efforts.

ÿ For some seasonal hazards, such as a hurricane, standard designated 

evacuation routes will be used to evacuate people.

ÿ Evacuation of people at risk for emergency situations that occur with 

little or no warning will be implemented on an ad hoc basis. The 

individual responsible for implementing it should be the IC at the scene 

of the emergency, with support arranged through the EOC as

necessary. Evacuation instructions should be based on known or

assumed health risks associated with the hazard.

Concept of 

Operations 

There are several factors which must be considered when planning for an

evacuation. Among these are the characteristics of the hazard or threat itself. 

The magnitude, intensity, speed of onset, duration, and impact on the local

community, are all significant elements to be considered. They will determine 

the number of people to be evacuated, time available in which to effect the 

evacuation, and the time and distance of travel necessary to insure safety. 

Evacuees are moved from their homes to a designated area within the

jurisdiction (or a neighboring jurisdiction in some cases) not impacted by the 

hazard that caused the evacuation.

General The provisions that have been made for carrying out a complete or partial

evacuation of the people from the jurisdiction are addressed. The areas likely 

to be evacuated are defined. The travel routes are specified and the destination 

of evacuees is identified. The means that will be used to transport evacuees are 

described. The approach for controlling the flow of evacuees from the
Attachment E: Evacuation

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-E-2

threatened area is outlined and the arrangements that have been made to return 

evacuees to their homes explained. This section:

ÿ Identifies the scope of authority granted to an IC to act under standing 

orders from the “CEO.”

ÿ Describes the provisions that have been made for evacuating special 

needs populations. Such populations include: children in school,

children in day care centers, nursing home residents (long-term); the 

handicapped (hearing-impaired, sight-impaired, mentally impaired, and 

mobility-impaired); non-English speaking people; institutionalized

individuals (in hospitals, mental health facilities, nursing homes (shortterm)); incarcerated residents (in jails, juvenile facilities, drug treatment 

centers, etc.); transient populations (street people, motel and hotel

guests, seasonal workers); and people without transportation.

ÿ Describes the means the government will use to keep evacuees and the 

general public informed on evacuation activities and the specific actions 

they should take. 

ÿ Describes the evacuation options and the evacuation routes that have 

been developed to protect and move the people away from the different 

types of hazards the jurisdiction faces.

ÿ Describes the modes of transportation that will be used to move

evacuees.

ÿ Identifies assembly areas for picking up people that do not have their 

own transportation.

ÿ Outlines or references the document that details the evacuation

movement control procedures.

ÿ Describes the provisions that have been made to control access to the 

evacuated area.
Attachment E: Evacuation

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-E-3

ÿ Describes the provisions that have been made to provide security for 

the protection of property in the area that has been evacuated.

ÿ Describes the provisions that have been made for the return of people 

to their homes.

Interjurisdictiona

l Relationships

This section describes the formal arrangements that have been made with the 

emergency management organization(s) in neighboring jurisdictions to facilitate 

the movement of evacuees from the hazard area and, if appropriate, provide 

them shelter and other services in a mass care facility.

Organization 

and 

Assignment of 

Responsibilities

This section describes the evacuation responsibilities that are assigned to tasked 

organizations. EOPs should include the types of tasking assigned to the

agency/organizational chiefs listed in the left margin:

Chief 

Executive 

Official

(“CEO”)

ÿ Requires the evacuation coordinator to report to the EOC when notified 

of an emergency situation.

ÿ Issues a statement on the jurisdiction's policy on people that do not 

comply with evacuation instructions. The statement addresses the

consequences for not evacuating and the services (food, medical,

utilities, sanitation, etc.) that will be discontinued or interrupted in the 

evacuation area. 

ÿ Issues evacuation instructions or an evacuation order when appropriate.

Evacuation 

Coordinator 

Upon arrival at the EOC: 

ÿ Reviews known information about the emergency situation and make 

recommendations to the Emergency Manager on the appropriate

evacuation options to implement.

ÿ Determines any scene(s) where IC(s) may have already evacuated. If 

so, identifies perimeters and verify extent of abandonment.
Attachment E: Evacuation

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-E-5

ÿ Identifies assembly areas for picking up people that do not have their 

own transportation.

ÿ Identifies evacuation routes.

• Estimates the traffic capacity of each designated evacuation

route. 

• Selects evacuation routes from risk area to designated mass 

care facilities. 

• Examines access to evacuation routes from each part of the risk 

area.

• Prepares the evacuation movement control plan.

• Coordinates with law enforcement officials.

ÿ Assists, as appropriate, the animal care and control agency's efforts to 

evacuate animals at risk during catastrophic emergency situations.

Emergency 

Manager

ÿ Makes recommendations to the “CEO” on the appropriate evacuation 

option to implement.

ÿ Ensures that functional coordinators are clear on location of mass care 

facilities outside of the risk area that will be used to house evacuees.

ÿ Coordinates with and assist the animal care and control agency staff to 

identify facilities that may be used to house evacuated animals.

Law 

Enforcement

ÿ Provides traffic control during evacuation operations. Operational

considerations include: 

• Route assignment departure scheduling.
Attachment E: Evacuation

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-E-6

• Road capacity expansion.

• Entry control for outbound routes.

• Perimeter control on inbound routes.

• Traffic flow, including dealing with breakdowns.

• Establishment of rest areas.

ÿ Secures, protects, and houses those prisoners that must be evacuated.

ÿ Assists in the evacuation of the risk area, as necessary.

ÿ Protects property in the evacuated area.

ÿ Limits access to the evacuated area.

ÿ Coordinates with the Evacuation Coordinator.

Public Works Verifies the structural safety of routes (roads, bridges, railways, waterways, 

airstrips, etc.) that will be used to evacuate people.

Public 

Information 

Officer

(PIO)

ÿ Disseminates the following types of instructional materials and

information to evacuees:

• Identification of the specific area(s) to be evacuated.

• List of items that evacuees should take with them (such as food, 

water, medicines, portable radio, fresh batteries, clothing,

sleeping bags). 

• Departure times.

• Pick-up points for people requiring transportation assistance.
Attachment E: Evacuation

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-E-6

• Evacuation routes. (Give easy to understand instructions using 

major roads, streets, highways, rivers, etc.)

• Location of mass care facilities outside of the evacuation area.

ÿ Keeps evacuees and the general public informed on evacuation

activities and the specific actions they should take.

Mass Care 

Coordinator 

ÿ Disseminates information on appropriate actions to protect and care for 

companion and farm animals that are to be evacuated or left behind.

Activates staff and opens mass care facilities outside the evacuation area when 

directed to do so by appropriate authority.

Health and 

Medical 

Coordinator

ÿ Ensures patient population is reduced in hospitals, nursing homes, and 

other health care facilities, if evacuation becomes necessary.

ÿ Ensures transport and medical care are provided for the patients being 

evacuated.

ÿ Ensures continued medical care is provided for patients who cannot be 

moved when hospitals, nursing homes, and other health care facilities 

are evacuated. 

Education 

Department/ 

School 

Superintenden

t

ÿ Evacuates students from school buildings when the situation warrants or 

when directed to do so by appropriate authority.

ÿ Closes school facilities and releases students from school when directed 

to do so by appropriate authority.

ÿ Coordinates, where appropriate, the use of school buses/drivers to 

support the overall evacuation effort.
Attachment E: Evacuation

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-E-7

Animal Care 

and Control 

Agency

ÿ Based on information from the Evacuation Coordinator on the highhazard areas in the jurisdiction, makes an initial estimate of the numbers 

and types of animals that may need to be evacuated.

ÿ Coordinates with the Evacuation Coordinator to arrange travel routes 

and schedules the timing for evacuation of farm animals, animals in

kennels, veterinary hospitals, zoos, pet stores, animal shelters, university 

laboratories, etc. and wildlife (as appropriate) from the risk area.

ÿ As appropriate, mobilizes transportation vehicles (stock trailers, trucks 

equipped with animal cages, etc.) that may be used to evacuate the 

animals. 

All Tasked 

Organizations

ÿ Implements evacuation by sending evacuation team(s) to load and

transport the animals being evacuated.

ÿ As appropriate, dispatches search and rescue teams to look for animals 

left behind by their owners, stray animals, and others needing transport 

to a safe location.

ÿ Make provisions to protect and secure facilities and equipment not 

taken out of the area to be evacuated.

ÿ Identify and make provisions to relocate the organizational equipment 

and supplies that will be moved from the evacuation area.

Administration

and Logistics

This section addresses the administrative and general support requirements for 

the evacuation function.

Administration Specific areas to be addressed include:

ÿ Records and reports associated with tracking the status (evacuation 

notices, number evacuated, number of evacuees in mass care facilities, 

etc.) of evacuation events.

ÿ Attaching as an appendix maps that depict the routes that have been 
Attachment E: Evacuation

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-E-8

designated as primary and alternate evacuation routes.

Logistics Specific areas to be addressed include:

ÿ The provisions that have been made to move from the area being

evacuated those essential supplies and equipment items that are needed 

to sustain operations and to meet the needs of evacuees. Typical items 

include: 

• Food.

• Water and water trailers.

• Medical supplies.

Plan 

Development 

and 

• Food, carriers, leashes, etc. for animals.

• Sanitation devices.

• Portable generators and lighting devices.

• Gas and diesel fuel.

• Public works equipment and vehicles such as bulldozers,

graders, dump trucks, snowplows, etc., 

• Police and fire fighting vehicles, etc.

ÿ Mutual aid agreements with neighboring jurisdictions that address the 

support (law enforcement personnel, vehicles to transport evacuees, 

mass care staff and facilities to shelter evacuees, etc.) to be provided by 

the jurisdictions to facilitate evacuation operations.

This section should identify who is responsible for coordinating revision of the 

jurisdiction’s Evacuation Annex, keeping its attachments current, and ensuring 

that SOPs and other necessary implementing documents are developed.
Annex E: Evacuation

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-E-9

Maintenance 

Authorities 

and 

References

Authorities and references should be cited as appropriate.
page 5-F-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Attachment F

Mass Care

Introduction

This function deals with the actions that are taken to protect evacuees and other 

disaster victims from the effects of the disaster. These actions include providing 

temporary shelter, food, medical care, clothing, and other essential life support 

needs to those people that have been displaced from their homes because of a 

disaster or disaster threat situation.

Developing a Mass Care Annex

Purpose A mass care annex describes the provisions that have been made to ensure 

disaster victims receive the appropriate services when at a mass care facility. 

Local government is responsible for the development of a capability to provide 

mass care services for its citizens in the event of an emergency and should be 

prepared, if necessary, to receive and care for people evacuated from the area 

directly impacted by a disaster. The requirements for services vary depending 

upon the nature and phase of the emergency. Local officials must be ready to 

provide different types of support in response to the unique nature of the

situation. Prior to onset, facilities (e.g., schools, churches, nonessential

government buildings, etc.) are needed to register, shelter, feed, protect, and 

provide for other human needs of an evacuated population. During the

emergency phase, these facilities may be used to provide evacuees physical 

protection from the effects (e.g., water and wind associated with storms,

earthquake aftershocks, radiological contamination from a nuclear power plant 

accident, etc.) of a disaster. During the post-disaster period these facilities may 

be used on a long-term basis to feed, care for, and provide temporary housing 

to the disaster victims whose homes have been severely damaged or destroyed 

or cannot return to their homes because of damage to or debris on roads and 

bridges. Other long-term post-disaster mass care options may include: 

kitchens to feed people; water supply stations; first aid stations; temporary

housing in rental units, tents, hotels/motels, and mobile homes; hygiene facilities 

(portable toilets and showers); mail service, etc.
page 5-F-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Situation and 

Assumptions

This section should identify the emergency conditions that could occur which 

would require the activation of mass care operations. These considerations,

in turn, provide input for decisions about types and locations of mass care 

facilities to be supported. For example, if the community is vulnerable to floods, 

hurricanes, tornadoes, and nuclear power plant accidents, the locations of the 

mass care facilities should be outside of the floodplain and have sufficient 

structural integrity to provide people physical protection from the effects of high 

wind, earthquake aftershocks, and radiological contamination.

This section also should address unknowns of the emergency situation that are 

associated with mass care. Such assumptions focus on the probable operational 

situations under disaster conditions, cover unanticipated contingencies, and

establish the parameters within which the planning for mass care will take place. 

 Typical assumptions are that:

ÿ The ultimate responsibility for mass care services for citizens rests with 

local government.

ÿ A public, nonprofit, or private-sector organization will manage and staff 

the jurisdiction's mass care facilities.

ÿ For a large-scale disaster, a DWI system will be implemented.

ÿ In most jurisdictions, the ARC will serve as the principal organization 

responsible for operating mass care facilities during disasters.

ÿ If ARC services are not available locally, other public or nonprofit 

organizations in the community will assume responsibility for operating 

mass care facilities. These organizations may include such agencies as 

the Salvation Army, churches, schools, or local service agencies.

ÿ Sufficient warning time will be available to ensure that mass care

facilities are opened in time to provide shelter and other services for the 

people that have been evacuated. 

ÿ Approximately 80 percent of evacuees will seek shelter with friends or 

relatives rather than go to an established mass care facility. (The actual 

figure should be based on behavioral studies and past experience of the 
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-2

jurisdiction.)

ÿ Where available, military support (as approved by the Governor) will 

be available to support mass care operations.

ÿ The jurisdiction may have to enter into an agreement with adjacent 

jurisdictions to arrange for mass care services for evacuees that cannot 

be taken care of in the home jurisdiction or to provide similar services 

to other jurisdictions when their evacuees cannot be cared for in their 

home jurisdiction.

Concept of 

Operations 

This section specifies the conditions under which mass care services will be 

provided and describes the methods that will be used to activate and manage 

mass care facilities. There are several factors which must be considered when 

planning for a mass care operation. Among these are the characteristics of the 

hazard or threat itself. The magnitude, intensity, spread of onset, duration, and 

impact on the local community, are all significant elements to be considered. 

They will determine the number of people that will need to receive mass care 

services.

General The provisions that have been made for setting up, supplying, and operating 

mass care facilities are addressed. The areas of the jurisdiction that are likely to 

require evacuation should be identified. The arrangements that have been made 

to direct evacuees to specific facilities also should be addressed. This section:

ÿ Describes the working relationship the jurisdiction has with the ARC or 

other nonprofit, public service, or private-sector organizations that have 

responsibility for managing mass care facilities.

ÿ Identifies the location of all mass care facilities that have been

designated to provide shelter and/or other services to evacuees.

ÿ Describes the means the government will use to keep evacuees and the 

general public informed on mass care activities. 

ÿ Describes the arrangement for operation of each mass care facility. 

These include: 
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-3

• Opening of the facility.

• Staff composition and management structure.

• Provisions for registering and tracking location of each evacuee 

(to be able to respond to inquiries from the evacuee’s family, 

track health concerns, etc.) 

• Specific services provided to evacuees (shelter, feeding,

medical care, etc.).

• Communications procedures.

• Reporting requirements. 

• Termination of services and closure of the facility.

ÿ Describes how the mass care function will support efforts to respond to 

inquires from family members of disaster victims. 

• The annex should establish an information flow from mass care 

facilities to the Mass Care Coordinator and from the Mass 

Care Coordinator to the jurisdiction’s public inquiry response 

effort. In this Guide’s approach, that public inquiry response 

effort would fall to the EPI organization, which would collect 

information from the Mass Care Coordinator and other

sources.

• Under the FRP, the ARC and Emergency Support Function 6 

(ESF-6) may operate a DWI system. The DWI system uses 

information from shelter lists, casualty lists, hospitals, the State 

EOC, and other sources to aid in family reunification and in 

responding to inquiries from immediate family members from

outside the affected area about the status of their loved ones. 

The annex may describe protocols for how a local jurisdiction, 

in concert with State officials, will interface with the ESF-6 
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-4

DWI system.

ÿ Identifies the population groups requiring special assistance when being 

sheltered in a mass care facility, i.e., the elderly and persons with

disabilities.

ÿ Describes the provisions that have been made for providing mass care 

services for special needs populations. Such populations include:

children in school, children in day care centers, nursing home residents 

(long term); the handicapped (hearing-impaired, sight-impaired, 

mentally impaired, and mobility-impaired); non-English speaking

people; institutionalized individuals (in hospitals, mental health facilities, 

nursing homes (short term)); incarcerated residents (in jails, juvenile 

facilities, drug treatment centers, etc.); transient population (street

people, motel and hotel guests, seasonal workers); and people without 

transportation.

ÿ Describes the provisions that have been made to feed, shelter, and 

provide medical treatment for animals during large-scale disasters.

Interjurisdictiona

l Relationships

This section describes the formal arrangements that have been made with the 

emergency management organization(s) in neighboring jurisdictions to ensure 

that all evacuees have access to the services available in a mass care facility.

Organization 

and Assignment 

of 

Responsibilities

This section describes the mass care responsibilities that are assigned to tasked 

organizations. EOPs should include the following types of tasking assigned for 

the agency/organization chiefs listed in the left margin below:

Chief 

Executive 

Official

(“CEO”)

ÿ Requires the Mass Care Coordinator to report to the EOC when

notified of an emergency condition.

ÿ Issues an order to open mass care facilities, when appropriate.

Mass Care 

Coordinator 

Upon arrival at the EOC:
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-5

ÿ Assesses the situation and make recommendations to the Emergency 

Manager on the number and locations of mass care facilities to be 

opened.

ÿ Reviews listing of available mass care facilities.

ÿ Notifies persons and organizations identified in the mass care resource 

list about possible need for services and facilities.

ÿ Selects mass care facilities for activation in accordance with:

• Hazard/vulnerability analysis considerations.

• Locations in relation to evacuation routes.

• Services available in facilities.

• Input from the Emergency Manager.

ÿ When directed, coordinates the necessary actions to ensure mass care 

facilities are opened and staffed, as needed.

ÿ Notifies mass care facility managers to do one of the following, when 

appropriate:

• Stand by for further instruction on the specific actions to take 

and the estimated timing for opening mass care facilities.

• Take the necessary action to open the facility they are

responsible for managing.

ÿ Coordinates with Resource Manager for supplies needed (including

bulk emergency relief items) and ensures each mass care facility

receives its supplies.

ÿ Coordinates with EOC staff to ensure that communications are

established, routes to the mass care facilities are clearly marked, and 
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-6

appropriate traffic control systems are established.

ÿ Ensures each mass care facility has a highly visible identity marker and 

sign that identifies its location.

ÿ Provides each Mass Care Facility Manager a listing of the location of 

the animal shelters that have been opened to house and care for

companion animals.

ÿ Assists, as appropriate, the animal care and control agency's efforts to 

feed, shelter, and provide medical treatment for animals during

catastrophic emergencies.

ÿ Ensures appropriate mass care information (number of occupants,

meals served, etc.) is made available to information processing section 

in the EOC.

ÿ Collects information from Mass Care Facility Managers to support the 

jurisdiction’s efforts to respond to inquiries from family members about 

the status of loved ones (name, home address, phone, next of kin, etc.).

ÿ Upon termination of emergency, submits a mass care expenditure

statement to appropriate authorities for reimbursement.

Mass Care 

Facility 

Manager

ÿ When notified, stands by for further instructions or report to assigned 

mass care facility, as appropriate.

ÿ Contacts team members and instructs them to take whatever actions 

that may be appropriate.

ÿ Staffs and operates the mass care facility. Upon arrival at the facility, 

takes the necessary actions to open it, receive evacuees, and provide 

for their health and welfare.

ÿ Contacts the EOC when the facility is ready to open.

ÿ Opens and keeps the facility operating as long as necessary.
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-7

ÿ Implements registration procedures for all evacuees that enter the

facility. 

ÿ If tasked, provides the Mass Care Coordinator with names and other 

appropriate information about people sheltered in the facility, to

respond to family inquiries.

ÿ Ensures individual and family support services are provided at the mass 

care facility.

ÿ Ensures space is available for service animals that belong to people with 

disabilities.

ÿ If companion animals are not permitted in the facility, provides

information to their owners about shelters that have been opened to 

house and care for animals.

ÿ Each day, reports the following to the EOC:

• The number of people staying in the facility.

• The status of supplies.

• Condition of the facility and any problem areas.

• As necessary, a request for specific types of support.

ÿ Maintains records of expended supplies.

ÿ Arranges for the return of evacuees to their homes or for transportation 

to temporary housing, if necessary.

ÿ When appropriate, terminates operations and closes the facility.

ÿ Cleans facility and returns it to original condition.
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-8

ÿ Submits mass care facility status report to the Mass Care Coordinator. 

The report identifies the equipment and supplies that are needed to 

restock the facility and any other problems that will need to be resolved 

before the facility is used again.

Emergency 

Manager

ÿ Makes recommendations to the “CEO” on the number and locations of 

the mass care facilities to be opened.

ÿ Coordinates with the PIO to facilitate dissemination of information to 

the public on both the location of the mass care facilities that will be 

opened and directions to them.

ÿ Coordinates with the Mass Care Coordinator to activate the

jurisdiction's mass care facilities.

American Red 

Cross (Local)

If appropriate, provides personnel to manage and staff mass care facilities.

Salvation 

Army (Local)

If appropriate, provides personnel to manage and staff mass care facilities.

Non-profit 

Public Service 

Organizations

If appropriate, provide personnel to manage and staff mass care facilities.

Education 

Dept./ School 

Superintenden

t 

ÿ If appropriate, provides personnel to manage and staff mass care

facilities.

ÿ Shelters students in school buildings when the situation warrants or 

when directed to do so by the appropriate authority.
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-9

Law 

Enforcement

ÿ Provides security at mass care facilities.

ÿ Provides traffic control during evacuee movement to mass care facilities.

ÿ Maintains order in mass care facilities.

ÿ If necessary, provides an alternative communications link between the 

mass care facility and the EOC through a mobile radio unit in police 

vehicles.

Public Works Ensures power, water supply, and sanitary services at mass care facilities are 

maintained during emergency conditions.

Public 

Information 

Officer (PIO)

Makes public announcement about availability of mass care facilities and animal 

shelters and their locations.

Military 

Department (if 

available)

ÿ Informs Mass Care Coordinator of mass care facilities available on 

military installations.

ÿ Coordinates use of mass care facilities on military installations.

ÿ Provides logistical support for mass care operations.

Agricultural 

Extension 

Agent 

Develops and maintains list of local food warehouses and other sources of bulk 

food stocks.

Animal Care 

and Control 

Agency

ÿ Assesses the situation and makes a decision on the number and location 

of shelters that will be used to house animals. Typical facilities include 

the jurisdiction's animal shelter(s), veterinary hospitals, boarding
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-10

kennels, pet stores, greyhound farms, and fairgrounds. Facilities for 

agricultural animals could include sale barns, boarding stables, race 

tracks, horse farms, poultry barns, dairy farms, and fairgrounds/

rodeogrounds. 

ÿ Coordinates the actions needed to obtain sufficient personnel to staff 

animal shelters, as needed.

ÿ Ensures each animal shelter has a highly visible identity marker and sign 

that identifies its location.

ÿ Coordinates with the PIO to facilitate dissemination of information to 

the public on the location of the companion animal shelters that will be 

opened.

ÿ Informs the Mass Care Coordinator of the location(s) of the shelters 

that have been opened.

ÿ If appropriate, coordinates with the Mass Care Coordinator to place 

personnel in public shelters to act as a referral source for animal disaster 

operations.

ÿ Opens shelters and provides food, water, and medical care, as needed, 

for the animals in the shelter.

ÿ Keeps shelters open as long as necessary.

ÿ Ensures each shelter receives the necessary supplies to sustain itself.

ÿ When appropriate, terminates shelter operations and closes the facility.

Administration

and Logistics

This section addresses the administrative and general support requirements

associated with completing mass care tasking.

Specific administrative matters to be addressed include:

ÿ Records and reports associated with tracking the status of mass care 
Attachment F: Mass Care

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-F-11

operations.

ÿ Attaching a listing of mass care facilities as an appendix. The list should 

include the facilities' location, people capacity, quantity and type of

kitchens, beds available, stock levels of medical and sanitation supplies, 

food and water, sleeping bags, restroom facilities, vehicle parking

capacity, etc. It also should identify the communication systems

available, list telephone numbers, and indicate if there is an emergency 

power system available.

Plan 

Development 

and 

Maintenance 

This section should identify who is responsible for coordinating revision of the 

jurisdiction’s Mass Care Annex, keeping its attachments current, and ensuring 

that SOPs and other necessary implementing documents are developed.

Authorities 

and 

References

Authorities and references should be cited as appropriate.

Attachment G

Health and Medical

Introduction

This function deals with the activities associated with the provision of health and 

medical services in emergencies and disasters. For the purposes of this Guide, 

health and medical services include: emergency medical (EMS), hospital, public 

health, environmental health, mental health, and mortuary services. The

activities associated with these services include treatment, transport, and
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-1

evacuation of the injured; disposition of the dead; and disease control activities 

related to sanitation, preventing contamination of water and food supplies, etc., 

during response operations and in the aftermath of a disaster. Depending on 

needs and resources, jurisdictions may want to prepare separate annexes for 

one or more of these health and medical services.

Developing a Health and Medical Annex

Purpose A health and medical annex describes policies and procedures for mobilizing 

and managing health and medical services under emergency or disaster

conditions.

Situation and 

Assumptions 

This section provides a general assessment and overview of the jurisdiction’s 

existing health and medical capabilities. It focuses on the jurisdiction’s

capability to provide medical care, treatment, and support to victims, response 

personnel, and the general public during the response and post-disaster phases.

This section also addresses limitations that may degrade health and medical

operations. Assumptions addressed might include the following: 

ÿ The annex applies primarily to large-scale emergency and disaster

events that would cause sufficient casualties and/or fatalities to

overwhelm local medical, health, and mortuary services capabilities, 

thus requiring maximum coordination and efficient use of these

resources.

ÿ Public and private medical, health, and mortuary services resources 

located in the jurisdiction will be available for use during disaster

situations.

ÿ Large-scale emergencies and disaster threat situations (earthquakes, 

hurricanes, nuclear power plant accidents, floods, etc.) may affect large 

areas of the jurisdiction, the State, or other States, requiring the use of 

mutual aid.

ÿ Public and private health and medical resources located in the
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-2

jurisdiction generally will be available for use during disaster situations, 

but many of these resources, including human resources, will themselves 

be impacted by the disaster.

ÿ Emergency measures to protect life and health during the first 12 to 24 

hours after the disaster in all likelihood will be exclusively dependent 

upon local and area resources.

ÿ Resources available through area and regional medical, health, and 

mortuary services mutual aid agreements will be provided for use during 

the disaster situation.

ÿ It may be necessary to relocate hospital facilities under austere

conditions to contingency field hospitals, or to permanent or temporary 

buildings that will provide patients and medical staff adequate protection 

from the effects of the disaster.

ÿ Volunteers will come forward to help perform essential tasks; their 

efforts must be anticipated and coordinated.

Concept of 

Operations

This section describes how health and medical operations will be conducted in 

the jurisdiction and in cooperation with other jurisdictions, other services, and 

the State and Federal governments.

General This section details the provisions for mobilizing and managing health and

medical services. It addresses pre-disaster, disaster, and post-disaster 

considerations. It identifies who will be in charge of directing health and medical 

operations and provides a general overview on how health and medical

activities will be accomplished.

Because health and medical services include so many different activities, it is 

essential to establish a framework for these services to work together. To 

ensure that the necessary planning and coordination are accomplished prior to 

the occurrence of a disaster and to facilitate the management of health and 

medical services during disasters, it is essential to vest this planning and

coordination responsibility in one position. An appropriate title for this position 

is “Health and Medical Coordinator.” The individual that fills this position is 
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-3

responsible for coordinating EMS, hospital, public health, environmental health, 

mental health, and mortuary services disaster planning and response actions.

The concept of operations should include provisions for:

ÿ Establishment of medical command post at the disaster site(s).

ÿ Coordinating health and medical response team efforts.

ÿ Triage of the injured, if appropriate.

ÿ Medical care and transport for the injured.

ÿ Identification, transportation, and disposition of the deceased.

ÿ Holding and treatment areas for the injured.

ÿ Isolating, decontaminating, and treating victims of hazardous chemical or 

infectious diseases, as needed.

ÿ Identifying hazardous chemicals or infectious diseases, controlling their 

spread, and reporting their presence to appropriate State and Federal 

health or environmental authorities.

ÿ Issuing health and medical advisories to the public on such matters as 

emergency water supplies, waste disposal, mass feeding services,

vectors, immunizations, disinfection, and others.

Interjurisdictiona

l Relationships

This section describes the mutual aid arrangements for health and medical

assistance to or from neighboring jurisdictions, the State, or jurisdictions outside 

of the State, when required. Further discussion is under the heading

“Administration and Logistics,” below.

Organization 

and Assignment 

of 

Responsibilities

This section describes tasked individuals’ and organizations' responsibilities for 

providing emergency health and medical services in the jurisdiction. The

following types of tasking may be assigned to the agencies and individuals listed 

in the left margin below:
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-4

Chief 

Executive 

Official 

(“CEO”) 

Requires the Health and Medical Coordinator to send a representative to the 

EOC when notified of an emergency situation.

Health and 

Medical 

Coordinator

Upon activation, or upon declaration or imminent declaration of an emergency 

or disaster:

ÿ Reports to the EOC or other designated location as deemed

appropriate; sends a representative to the EOC if unable to report in 

person.

ÿ Rapidly assesses health and medical needs.

ÿ Oversees and coordinates the activated health and medical

organizations to assess their needs, helps them obtain resources, and 

ensures that necessary services are provided.

ÿ Ensures that emergency medical teams responding to a disaster site 

establish a medical command post.

ÿ Coordinates with neighboring community health and medical

organizations and with State and Federal officials on matters related to 

assistance from other jurisdictions, including Federal assistance.

ÿ Screens and coordinates with incoming groups such as Disaster

Medical Assistance Teams (DMAT) as well as individual health and 

medical volunteers; ensures that positive identification and proof of

licensure is made for all volunteers.

ÿ Maintains a patient/casualty tracking system.

ÿ Coordinates the location, procurement, screening, and allocation of

health and medical supplies and resources, including human resources, 

required to support health and medical operations.
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-5

ÿ Provides information through the PIO to the news media on the number 

of injuries, deaths, etc.

ÿ Ensures appropriate health and medical services information is made 

available to the information processing section in the EOC.

ÿ Coordinates support to the jurisdiction’s efforts to respond to inquiries 

from family members concerned about loved ones.

Emergency 

Medical 

Services 

(EMS)

ÿ Respond to the disaster scene with emergency medical personnel and 

equipment.

ÿ Upon arrival at the scene, assume appropriate role in the ICS. If ICS 

has not been established, initiate in accordance with the jurisdiction’s 

emergency management system and report implementation to the EOC.

ÿ Triage, stabilize, treat, and transport the injured. Coordinate with local 

and regional hospitals to ensure casualties are transported to the

appropriate facilities.

ÿ Establish and maintain field communications and coordination with other 

responding emergency teams (medical, fire, police, public works, etc.), 

and radio or telephone communications with hospitals, as appropriate.

ÿ Direct the activities of private, volunteer, and other emergency medical 

units, and of bystander volunteers as needed.

ÿ Evacuate patients from affected hospitals and nursing homes if

necessary.

Hospitals ÿ Implement internal and/or external hospital disaster plan.

ÿ Advise the Health and Medical Coordinator or appropriate

representative in the EOC of conditions of the hospital and number and 

type of available beds.
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-6

ÿ Establish and maintain field and interhospital medical communications.

ÿ Provide medical guidance as needed to EMS.

ÿ Coordinate with EMS, other hospitals, and any medical response

personnel at scene to ensure that casualties are transported to the

appropriate medical facility. Distribute patients to and among hospitals 

both inside and outside the area based on severity and types of injuries, 

time and mode of transport, capability to treat, and bed capacity. Take 

into account special designations such as trauma centers and burn

centers. Consider the use of clinics to treat less than acute illnesses and 

injuries.

ÿ Coordinate with local emergency responders to isolate and

decontaminate incoming patients, if needed, to avoid the spread of

chemical or bacterial agents to other patients and staff.

ÿ Coordinate with other hospitals and with EMS on the evacuation of 

patients from affected hospitals, if necessary. Evacuation provisions 

should specify where the patients are to be taken. 

ÿ Depending on the situation, deploy medical personnel, supplies, and 

equipment to the disaster site(s) or retain them at the hospital for

incoming patients.

ÿ Establish and staff a reception and support center at each hospital for 

the relatives and friends of disaster victims who may converge there in 

search of their loved ones.

ÿ Provide patient identification information to the ARC upon request.

Public Health 

Officer

ÿ Coordinates all public health services in the jurisdiction.

ÿ Inspects for purity and usability all foodstuffs, water, drugs, and other 

consumables that were exposed to the hazard.
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-7

ÿ Provides epidemiological surveillance, case investigating, and follow-up.

ÿ Provides laboratory services for identification required to support

emergency health and medical services.

ÿ Coordinates operations for immunizations or quarantine procedures, if 

required.

ÿ Establishes preventive health services, including the control of

communicable diseases such as influenza, particularly in shelters.

ÿ Monitors food handling and mass feeding sanitation service in

emergency facilities, including increased attention to sanitation in

commercial feeding and facilities that are used to feed disaster victims.

Environmental 

Health Officer 

ÿ Provides for the monitoring and evaluation of environmental health risks 

or hazards as needed and ensures the appropriate actions are taken to 

protect the health and safety of disaster victims, responders, and the 

general public.

ÿ Implements actions to prevent or control vectors such as flies,

mosquitoes, and rodents.

ÿ Detects and inspects sources of contamination.

ÿ Inspects damaged buildings for health hazards.

ÿ Coordinates with the water, public works, or sanitation departments to 

ensure the availability of potable water, an effective sewage system, and 

sanitary garbage disposal.

ÿ Coordinates with the animal care and control agency to dispose of dead 

animals.

ÿ Ensures that adequate sanitary facilities are provided in emergency

shelters and for response personnel.
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-7

Mental Health 

Agencies

ÿ Ensure that appropriate mental health services are available for disaster 

victims, survivors, bystanders, responders and their families, and other 

community care-givers during response and recovery. Services may 

include crisis counseling, critical incident stress debriefings, information 

and referral to other resources, and education about normal, predictable 

reactions to a disaster experience and how to cope with them. There 

should be a capacity to provide specialized assistance for those affected 

by a traumatic event or who become traumatized by cumulative stress 

related to the disaster experience.

ÿ Provide outreach to identify and serve those in need of mental health 

support.

• Coordinate with the PIO to arrange for dissemination of

information to the public.

• Coordinate with the Mass Care Coordinator to identify shelter 

occupants that may require assistance.

ÿ Have inpatient psychiatric facilities take the following actions:

• Implement the facility’s appropriate disaster plan.

• Provide for the care, safety, and continued treatment of hospital 

residents.

• Coordinate with appropriate authorities for the safe evacuation 

of residents.

• Provide resources and support to the community-based mental 

health system in responding to the disaster mental health needs 

of impacted communities.

Mortuary 

Services

ÿ Provide for the collection, identification, and care of human remains, 

determining the cause of death, inventorying and protecting deceased’s 

personal effects, and locating and notifying the next of kin.
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-9

ÿ Establish temporary morgue sites.

ÿ Establish and maintain a comprehensive record-keeping system for 

continuous updating and recording of fatality numbers.

ÿ Coordinate with:

• Search and rescue teams, hospitals, EMS, and other emergency 

responders.

• Funeral directors, morticians, and assets for transportation of 

deceased persons.

• Other pathologists.

• The ARC for location and notification of relatives.

• Dentists and x-ray technicians for purposes of identification.

• Law enforcement agencies for security, property protection, 

and evidence collection.

American Red 

Cross

ÿ Provides food for emergency medical workers, volunteers, and

patients, if requested.

ÿ Maintains a DWI system in coordination with hospitals, aid stations, and 

field triage units to collect, receive, and report information about the 

status of victims.

ÿ Assists in the notification of the next of kin of the injured and deceased.

ÿ Assists with the reunification of the injured with their families.

ÿ Provides blood, blood substitutes, and blood byproducts, and/or
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-10

implementing reciprocal agreements for replacement of blood items.

ÿ Provides first aid and other related medical support at temporary

treatment centers, as requested, and within capability.

ÿ Provides supplementary medical, nursing aid, and other health services 

upon request, and within capability.

ÿ Provides assistance for the special needs of the handicapped, elderly, 

and those children separated from their parents, within capability.

Social Service 

Agencies

Assist in providing for the special needs of the handicapped, elderly, and

children separated from their parents; also provide for special needs of

orphaned children.

Animal Care 

and Control 

Agency

ÿ Coordinates with veterinarians and animal hospitals to arrange for

services for animals as needed. These might include service,

companion, or farm animals, wildlife, etc.

ÿ Coordinates with the Environmental Health Officer on the location,

collection, and disposal of dead animals.

Police/ 

Corrections 

Department(as 

appropriate) 

ÿ Maintains emergency health services at juvenile and adult correctional 

facilities.

ÿ Assists Mortuary Services in the identification of fatalities.

ÿ Provides security assistance to medical facilities and to health and

medical field personnel upon request.

Military 

Department 

Provides personnel and equipment to support medical operations during

disaster situations (at the direction of the Governor).
Annex G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-11

All Tasked 

Organizations 

ÿ Adhere to all professional and legal standards in the performance of 

duties.

ÿ Provide ongoing status reports to the Health and Medical Coordinator, 

including number of deaths, injuries, etc.

ÿ Provide and/or receive mutual aid in coordination with the Health and 

Medical Coordinator.

ÿ Provide information to the Health and Medical Coordinator for

dissemination of public advisories as needed.

ÿ As needed, coordinate with other emergency health and medical

services; with emergency services such as fire, police, and public

works; and with the Health and Medical Coordinator.

ÿ Refer all media requests for information to the Health and Medical

Coordinator.

ÿ Maintain updated resource inventories of emergency medical supplies, 

equipment, and personnel resources, including possible sources of

replacements. 

ÿ Arrange for security to protect vulnerable work sites such as remote aid 

stations, temporary morgues, etc.

ÿ Develop plans to evacuate and/or shelter, as appropriate, patients, staff, 

equipment, supplies, and vehicles before, during, and after disasters.

ÿ Prepare detailed SOPs that include: call-down rosters for notifying 

personnel; step-by-step procedures for performing assigned tasks;

telephone numbers and addresses/locations of similar services in other 

jurisdictions; area and local stores (grocery and drug), and medical

warehouses that will provide pharmaceutical and medical supplies;

telephone numbers, addresses, type, quantity, location, and procedures 

for obtaining transportation resources from Federal, State, local, and 

private organizations; and a listing of the radio communications call signs 

and frequencies that each responding organization uses.
Annex G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-11

ÿ Designate staff to perform disaster duties.

Administration

and Logistics

This section describes administrative and general support requirements for

accomplishment of emergency health and medical tasks.

Administration This section focuses on the administrative management of health and medical 

resources. It addresses the general support requirements and identifies sources 

that will be relied upon to obtain personnel, equipment, and supplies,

transportation, facilities, services, and other resources required to support

disaster response and recovery operations. Specific requirements include:

ÿ Medical Response Teams. This section should first identify preorganized medical teams within the jurisdiction. It should then sketch 

arrangements for requesting mutual aid teams from neighboring

jurisdictions, from State sources, such as State Guard or militia units, 

and from Federal sources, such as military, Centers for Disease Control 

and Prevention (CDC), and National Disaster Medical System

(NDMS) sources.

ÿ Augmentation Personnel. This section describes the sources of health 

and medical personnel and the provisions (e.g., verifying adequacy of 

credentials for those who do not practice in the jurisdiction) that have 

been made to call upon them to augment disaster medical teams. They 

include:

• Local emergency medical services personnel from medical and 

public health agencies and fire, police, public work, and other 

emergency services departments. Among these would be

general physicians, specialists (qualifications should include

hospital experience in trauma/disaster medicine), nurses,

laboratory and x-ray technicians, emergency ambulance crews, 

etc.

• State-employed general physicians, specialists (qualifications

should include hospital experience in trauma/disaster medicine), 
Annex G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-12

nurses, laboratory and x-ray technicians, emergency ambulance 

crews, etc. 

• Volunteer/bystander health professionals including general

physicians, specialists (qualifications should include hospital

experience in trauma/disaster medicine), nurses, laboratory and 

x-ray technicians, emergency ambulance crews, etc.

• Medical school residents and teaching staff from throughout the 

State.

• Public Health Service (to include Federally sponsored DMATs 

and Veterinary Medical Assistance Teams).

• Other volunteer medical personnel from throughout the State.

• Armed Forces and the U.S. Coast Guard.

• The Indian Health Service.

• Department of Veterans Affairs personnel.

• Volunteer medical personnel from other States.

• Business and industry medical departments.

Logistics This section addresses the arrangements that have been made to provide for the 

support needs of the organizations performing health and medical functions. 

Specific matters needing attention include:

ÿ Sources of medical supplies and equipment:

• Local stores (hospitals, pharmacies, emergency vehicles, local 

government resources, et cetera). As appropriate, arrange for 

pharmacies to stay open 24 hours a day during specific periods 

for victims, evacuees, and responders.
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-14

• County-stored emergency aid stations, where available and

usable.

• Mutual aid from jurisdictions not affected by the disaster.

• Private sector suppliers in the State.

• Private sector health care organizations that maintain a supply 

system for medical supplies and equipment.

• NDMS (Includes U.S. Department of Defense, Department of 

Health and Human Services, Department of Veterans Affairs, 

and FEMA.) Note: Local jurisdictions should work through 

their State emergency management agency and FEMA to

obtain resources under the control of the Federal Government.

ÿ Acquisition of medical/health equipment and supplies including:

• Initial supply and resupply for field medical operations.

• Initial supply and resupply for health and mortuary services.

• Resupply of functioning hospitals in the affected areas.

• Resupply of hospitals and other facilities outside the disaster 

areas receiving casualties.

ÿ Transportation of medical/health supplies, personnel, and equipment: 

• Local government-owned and commercial fixed-wing aircraft, 

trucks, and buses.

• Armed Forces fixed-wing aircraft, helicopters, and trucks.

• Private and public ambulance companies.
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-14

• Water transport.

• Limousine and taxi companies.

• Mortuaries (for hearses).

• Four-wheel drive and high-centered vehicles for medical

evacuations under bad weather or terrain conditions.

ÿ Shelter and feeding of field, health, and medical personnel and patients.

ÿ Identification and selection of suitable facilities to serve as temporary 

morgue.

ÿ Acquisition of embalming supplies, body bags, and necessary heavy

equipment suitable for dealing with a mass fatality situation.

Plan 

Development 

and 

Maintenance

This section should identify who is responsible for coordinating revisions of the 

jurisdiction’s Health and Medical Annex, keeping its attachments current, and 

ensuring that SOPs and other necessary implementing documents are

developed.

 

Authorities 

and 

References 

This section should highlight those statutes, regulations, administrative orders, 

etc., which provide authority for the preparation of medical and health services 

disaster plans and for designating the name of the agency and/or title of the 

officials responsible for management of medical and health services during

disaster response and recovery operations. It should also cite:

ÿ Authorities as applicable to coroner/medical examiner and mortuary

services during disaster response and recovery operations.

ÿ Authorities that provide for access to, use of, and reimbursement for 

private sector resources in an emergency, and for emergency

procurement procedures.

ÿ Authorities that provide for emergency powers under which emergency 
Attachment G: Health and Medical

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-G-15

medical and public health activities are authorized. Also, the extent of 

liability and/or immunity status of emergency medical, public health, and 

mortuary services workers.

ÿ References that were used to prepare the jurisdiction’s Health and 

Medical Annex.
page 5-H-1

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Attachment H

Resource Management

Introduction

All responding agencies manage people, equipment, facilities, and supplies to 

accomplish their tasks. However, emergencies can require more specialized 

resources than the responding agencies have available. The resource

management function is necessary to ensure that:

ÿ A complete picture of available resources is known to decision-makers.

ÿ All available resources are used appropriately and arrive where and 

when they are most needed.

ÿ Additional resources can be secured for responders as their own

resources are expended or damaged.

ÿ Critical resource needs of the public are met despite disruption of

commerce and infrastructure.

ÿ Accountability is maintained for the jurisdiction's use of resources.

As presented here, resource management is a process that ranges from

determining needs to finding and staging resources to meet these needs. In 

practice, different jurisdictions assign parts of this process to several different 

organizational elements. The goal of this Guide is not to prescribe an

organizational arrangement, but to suggest all that is involved in resource

management and how the pieces fit together. The Guide is meant to stimulate 

ideas, however your jurisdiction organizes to do resource management. 

Developing a Resource Management Annex

Purpose A resource management annex describes the means, organization, and process 

by which a jurisdiction will find, obtain, allocate, and distribute resources to 

satisfy needs that are generated by an emergency. 
Attachment H: Resource Management page 5-H-2

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

Situation and 

Assumptions 

The situation and assumptions section describes the planning environment for 

the resource management function, i.e., factors that directly impact the ability of 

the jurisdiction to satisfy resource demand and manage support activities during 

response operations. Factors to be considered include:

Situation ÿ Hazards. The situation and assumptions section should outline the 

potential for emergencies requiring the resource management function. 

In particular, the section could highlight potential critical resource

shortages (e.g., power, fuel in winter, potable water in times of drought 

or as a secondary effect of heavy flooding) and credible emergency 

scenarios that would deplete responding agencies' resources. Possible 

effects on the transportation and distribution network also should be 

noted. 

ÿ Resources. Complete listings of resources and planned requirements 

should be maintained in attachments to the plan, a resource

manual/database, or in organizational SOPs, as appropriate. However, 

the situation section can summarize the jurisdiction's status for general 

resource categories, such as:

• Personnel (including skilled labor and professionals).

• Communications equipment. 

• Vehicles for passengers, cargo, and debris removal (e.g., dump 

trucks and garbage trucks).

• Heavy equipment for public works applications (e.g., cranes, 

road graders, etc.) and materials handling (e.g., fork lifts, 

conveyor belts).

• Pumps. 

• Useful materials and tools such as fuel, sand and sandbags, 

plastic sheeting (for roof repair, etc.), shovels, picks, chainsaws, 

hatchets, etc. 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-3

• Mass care supplies such as medicine and first aid supplies; 

potable water; food; bedding, blankets, and cots; sanitation

supplies (e.g., portable toilets), lighting (lanterns, candles, etc.). 

• Portable generators.

ÿ Mutual Aid. The situation and assumptions section can also note the 

jurisdiction's participation in mutual aid agreements.

Assumptions Assumptions might include the following:

ÿ Information. A resource inventory or database will be maintained by 

the Emergency Manager or the Resource Manager.

ÿ Initial sustainability. Response agencies will sustain themselves during 

the first 24 hours of an emergency. Households and businesses located 

in the area directly affected by the emergency situation will sustain

themselves during the first 72 hours of an emergency. (An ongoing 

public information activity will help ensure that the population knows 

what to include in a disaster supply kit.)

ÿ Evacuee Support. Evacuees located in a mass care facility will receive 

necessary life sustaining services from the facility.

ÿ Donations. A resource management annex should acknowledge the 

potential for donations, given any emergency--even a forecast

emergency-- that generates sustained media coverage. 

ÿ Availability of volunteers. Performance of the resource management 

function will depend on the availability of a large pool of volunteers. 

Offers of help will be received.

ÿ Access to Mutual Aid. If the jurisdiction is depending on mutual aid to 

cover resource shortfalls, it assumes some parties to the agreement will 

themselves be affected and unable to provide the resources.

ÿ Availability of aid from a higher level of government. Pressure on 

the resource management function to supply unmet needs of response 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-4

agencies may be reduced by assistance from the next higher level of 

government. (However, the resource management function will still be 

necessary given uncertainty over the timing, form, and amount of that 

assistance relative to the jurisdiction's needs. Resource management 

planning is also necessary to generate detailed information on needs and 

logistics that the higher level of government may not have.) 

Concept of 

Operations 

This section should describe how the resource management organization will be 

activated and the sequence of tasks it will perform. It also should set forth 

resource management policies (if these are not described in a separate

“Policies” section ).

 

General

Sequence of 

Activities

General policies might include:

ÿ Priorities. Disaster victims will take precedence in the allocation of 

resources. Specific priorities will be set by the Resource Manager in 

consultation with the “CEO” or a designated official in the EOC. 

ÿ Initial sustainability. Response agencies will sustain themselves during 

the first 24 hours of an emergency. 

ÿ Supplier of last resort. Emergency services agencies should exhaust 

their own channels of support (e.g., mutual aid agreements with similar 

agencies in other jurisdictions) before turning to the resource

management function.

ÿ Costs. Purchase prices and contract costs, where possible, should be 

established during development of the EOP. Even if eligible for

reimbursement, costs should initially be considered the responsibility of 

the requesting agency.

ÿ Notification. The Resource Manager should be among those initially 

notified of an emergency. When warning is available, suppliers with 

whom agreements exist should be notified of the intent to activate the 

agreements.

ÿ Activation and deployment. The annex should specify who (the

“CEO” or the Emergency Manager) activates the resource management 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-5

function. It also should specify the core cadre of staff that will perform 

the function at the EOC, regardless of the scope of the activation. The 

Resource Manager's discretion and authority to activate additional 

facilities and personnel--for example, a Donations Coordination Team 

and associated telephone banks, donations receiving areas,

checkpoints, and warehouses--should be indicated. (A complete

breakout of the staffing requirements at each possible facility is

appropriate as a tab to the Administration and Logistics section, but 

could be referenced here.)

ÿ Emergency activity. The concept of operations should address four 

basic concerns of emergency resource management activity: determining 

needs, obtaining supplies, maintaining financial and legal accountability, 

and distributing supplies. See Figure 5-H-1.

• Determining needs. 

 

− Needs assessment (ongoing). The annex should

explain how needs known in the field will become

known to the resource management organization. At 

first, this may be a matter of anticipating needs based on 

preliminary damage assessments and past experience. 

The Resource Manager should relay to the resource 

management organization all needs determined by the 

“CEO.” All agencies should be tasked to report to 

resource management--whether directly or through the 

EOC Manager--any needs they are unable to meet

through their own channels as the emergency

progresses. For its part, the resource management

organization must ensure that it extracts the essential

information from those who report a need. Essential 

information includes: 

∗ WHAT is needed and WHY, as specifically as 

possible (since a different item might work as 

well or better and be readily available).

∗ HOW MUCH is needed.

∗ WHO needs it.
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-6

∗ WHERE it is needed.

∗ WHEN it is needed.

− Prioritization (ongoing). The Resource Manager

will apprise "the Needs Group" of priorities set by the 

“CEO” or a designated representative. A formal

classification system may be useful. Note that among 

the highest priorities may be satisfying needs of the

resource management organization, e.g., securing the 

use of any additional facilities required by the Resource 

Manager.

− Follow-up. Resource requests should be logged,

prioritized, passed on to those responsible for obtaining 

and committing resources, and then tracked (as

Pending, En Route, Met, etc.) via subsequent feedback 

from "the Supply Group," "the Distribution Group," 

and the requesting party. The Resource Manager

should receive reports on a regular basis about needs 

and the status of requests.

• Obtaining Supplies.

− Notification of suppliers. When warning is available, 

the Supply Group should notify suppliers with whom 

agreements exist of the jurisdiction's intent to activate 

the agreement. Availability of supplies should be

validated and key items should be reserved. 

− Evaluation of requests against known supplies

(ongoing). Upon receipt of a request, the Supply 

Group should attempt to fill the need with jurisdictional 

resources or resources for which agreements are in

place. If the needed resource is on hand, the Supply 

Group contacts the supplier, confirms transportation

responsibilities and provides necessary information

(e.g., to pass checkpoints), notifies the Distribution 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-6

Group of the incoming resource (or of the need to pick 

it up) and its priority, and informs the Needs Group

that action has been taken on the request. If the needed 

resource is not listed among prearranged supplies, the 

next step is to see if a workable offer to donate it has 

been made (assuming a Donations Coordination Team 

has been activated). If not, the options are to procure 

(or hire) or to solicit a donation of the needed resource.
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-7

− Procurement and Hiring. When requests are of high 

priority for the jurisdiction, an expedited procurement 

or hiring process may be in order. Procurement involves 

contacting suppliers, negotiating terms (in coordination 

with the Financial Officer and Legal Advisor if

necessary), making transportation arrangements,

notifying the Distribution Group, and notifying the

Needs Group of action taken. Hiring can take

advantage of local or State job service records and 

personnel, any "applicant supply files" the government 

personnel office maintains for particular types of

positions, etc., in order to fill positions. 

 

− Soliciting Donations. When high priority needs cannot 

be satisfied quickly through procurement and hiring, or 

when cost begins to outweigh time as a consideration, 

an appeal can be made through a Donations

Coordination Team and the PIO for donations of the 

goods or service in question. See the National

Donations Steering Committee's Donations 

Management Guidance Manual.

• Maintaining financial and legal accountability. The

Finance Officer should keep the Resource Manager and the 

Supply Group aware of their authorized budget, log and

process transactions, track accounts, and secure access to

more funding as necessary and feasible (e.g., ensuring

jurisdictional access to cash donations, where law permits). The 

Legal Advisor should keep them aware of their legal

obligations--and also of any special powers granted by law to 

expedite their tasks.

• Distributing goods (and services).

− Activating and operating key facilities. The

Resource Manager should determine what facilities 

(e.g., donations receiving areas, checkpoints,
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-8

warehouses) will be required to handle the flow of

resources into and through the jurisdiction. The

Resource Manager should then direct the

Distribution Group to set up and operate the facilities.

− Traffic control. The Distribution Group should

ensure that high priority resources are dispatched

quickly to where they need to be. Unnecessary traffic 

should be held back or rerouted. 

− Hauling. Procurement and donations efforts should try 

to ensure that suppliers of a resource also supply

transportation for it: the jurisdiction's transportation

resources may be almost fully committed. However, 

the Distribution Group may be tasked to pick up 

resources.

− Reporting and coordination. From the EOC, the 

Distribution Group would notify checkpoints and

other facilities (as applicable) of incoming resources to 

expect, as well as their priority designation.

Checkpoints and other facilities (as applicable) would 

provide regular reports on resources passing through

(or inventory), allowing the Distribution Group to

track location of resources and timeliness of delivery.

ÿ Post-emergency activity (recovery) When needs have largely been 

met, the crisis subsides, and the jurisdiction's government can begin to 

function in its normal, day-to-day mode, the resource management 

function will have to address four areas:

• Disposal of excess stocks. Loaned equipment will have to be 

returned to its owners. Surplus property can be dealt with

through normal procedures--except perhaps where hazardous 

materials are concerned. Warehouse space may be needed for 

excess donations as local and area volunteer agencies attempt 

to absorb them; a Donations Coordination Team would then 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-9

have a role in finding takers for the excess. 

• Stand down. Facilities and staff should be deactivated as soon 

as is feasible, with all reports and documentation filed.

• Financial settlement. The jurisdiction may need to reimburse 

or compensate the owners of private property. It may also 

have to submit required reports that address the jurisdiction's 

financial liability for any assistance received under the Stafford 

Act.

• Thank-you's. Suppliers and donors who came through for the 

jurisdiction should receive some acknowledgment, as feasible 

and in coordination with the Office of the Chief Executive and 

the PIO. New suppliers might be polled about their interest in 

developing a memorandum of agreement in time for the next 

emergency.

Coordination 

with Voluntary 

Agencies

A resource management annex should address how the jurisdiction's

government will coordinate its resource management activities with voluntary 

agencies' own donations management efforts. It also should address policies on 

use of volunteer labor. 

Local, State, 

and Federal 

Coordination 

The resource management annex should describe what relationship, if any, the 

resource management function has to the resource support efforts of the next 

higher level of government. For example, State donations management planning 

should recognize that an 800 number and technical assistance are available 

through FEMA upon request.

Organization 

and Assignment 

of 

Responsibilities

The organizational scheme used here (see Figure 5-H-1, next page) is

conceptual. It was meant to reflect the process of resource management 

activity: determine needs, find a source for meeting the needs, ensure financial 

and legal accountability, and transport and distribute the resources. It should 

be adapted to conditions in the jurisdiction. For example, in some local 

jurisdictions one person may receive and log requests, determine resource

availability, and initiate procurement actions if needed. They may leave

donations management work to voluntary agencies or a State Donations
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-10

Coordination Team. In some States, transportation or financial management 

may be separate functions, and donations management may be a subset of mass 

care logistics. The important thing is to ensure that the entire process of

resource management is well coordinated, however it is organized.
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-10

(Those jurisdictions opting to treat donations management separately should 

recognize and structure the links between it and the resource management 

function. Both functions will rely on the jurisdiction's transportation, distribution, 

and traffic control systems. Each will need access to the other's information 

regarding needs and supply: donations management can supplement resource 

management's efforts to obtain certain items and also should relay useful bids 

from the contractors and vendors that inevitably call donations hotlines; at the 

same time, donations management may be unsuccessful in filling some identified 

needs by a certain time, making procurement through resource management 

necessary.)

The following types of tasking should be performed for resource management, 

and could be assigned to individuals and organizations as listed in the left margin 

below:

Resource 

Manager 

Upon arrival at the EOC:

ÿ Directs and supervises the activities of the Needs, Supply, and

Distribution Groups. 

ÿ Coordinates with the EOC Manager and key organizations'

representatives in the EOC regarding needs and priorities for meeting 

them.

ÿ During the emergency, monitors potential resource shortages in the

jurisdiction and advises the Emergency Manager or “CEO” on the need 

for action.
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-11

ÿ Identifies facilities/sites that may be used to store needed resources and 

donations.

ÿ Determines the need for and directs activation of facilities necessary for 

the coordinated reception, storage, and physical distribution of

resources.

ÿ Makes arrangements for work space and other support needs for

resource management staff.

Needs Group Receives requests and reports on the function's success in meeting needs; under 

Resource Manager. (Includes Needs Analyst and Needs Liaisons.)

Needs Analyst ÿ When notified of an emergency, reports to the EOC or other location 

specified by the Resource Manager.

ÿ During multiple scene emergencies or disasters, monitors resource

demands from Incident Command Logistics Officers and maintains list 

of all staging area resources, itemized by incident location.

ÿ Tabulates needs assessment and specific requests.

ÿ Prioritizes needs for Supply Group, with concurrence of Resource

Manager.

ÿ Provides regular reports to Resource Manager on the status of requests 

(e.g., pending, en route, met).

Needs Liaisons (May be specialists in a certain resource category, the better to elicit essential 

information from requester.)

ÿ When notified of an emergency, report to the EOC or other location 

specified by the Resource Manager.

ÿ Receive specific requests, eliciting essential information from requesting 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-12

parties.

Supply Group Locates and secures resources. Headed by Supply Coordinator. As needed, 

includes teams for procurement, personnel, and donations. Should be supported 

with financial information and legal advice.

Supply 

Coordinator 

ÿ When notified of an emergency, reports to the EOC or other location 

specified by the Resource Manager.

ÿ Determines appropriate means for satisfying requests (with concurrence 

of Resource Manager).

ÿ Handles unsolicited bids.

ÿ Keeps Needs Group informed of action taken on requests.

ÿ Keeps Distribution Group informed of expected movement of

resources, along with the priority designation for the resources.

ÿ Requests transportation from Distribution Group (with concurrence of 

Resource Manager).

 

Donations 

Coordination 

Team 

Headed by a Donations Coordinator.

ÿ When notified of an emergency, reports to the EOC or other location

specified by the Resource Manager.

ÿ Receives offers of donated goods and services.

ÿ Matches offers to needs (whether those of its own separate needs 

assessment or those of the larger jurisdictional needs assessment).

ÿ Through PIO, disseminates information to ensure that offers are not 

inappropriate to needs.

ÿ Makes special requests as directed by Supply Coordinator. 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-14

ÿ Ensures that Resource Manager is apprised of needs/"unmet needs" list 

and that physical distribution efforts (in those jurisdictions that treat 

donations logistics separately) are coordinated with the Distribution

Group.

Procurement 

Team

Undertakes ad hoc procurement as directed by Supply Coordinator; otherwise, 

uses database and/or resource listings to fill requests through prearranged

supply channels. May consist of specialists in a certain resource category.

 

ÿ When notified of an emergency, reports to the EOC or other location 

specified by the Resource Manager.

ÿ When warning is available and as directed by Supply Coordinator, 

notifies private industry parties to any memorandum of agreement of the 

jurisdiction's intent to activate the agreement, confirms availability of

resources specified by the agreement, and reserves supply.

ÿ Locates needed resources using database and/or resource listings for 

the jurisdiction and participating suppliers. 

ÿ As directed by Supply Coordinator, seeks to procure resources not 

available through pre-arranged channels.

ÿ In all cases, contacts suppliers, settles terms for transportation, and 

provides information necessary to pass checkpoints.

ÿ Informs Supply Coordinator when the jurisdiction must provide

transportation in order to make use of the resource.

Personnel

Team 

ÿ When notified of an emergency, reports to the EOC or other location 

specified by the Resource Manager.

ÿ As directed by Supply Coordinator, recruits and hires personnel to 

meet emergency staffing needs.
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-14

Financial 

Officer 

ÿ When notified of an emergency, reports to the EOC or other location 

specified by the Resource Manager.

ÿ Oversees the financial aspects of meeting resource requests, including 

record-keeping, budgeting for procurement and transportation, and

facilitating cash donations to the jurisdiction (if necessary and as

permitted by the laws of the jurisdiction).

Legal Advisor ÿ When notified of an emergency, reports to the EOC or other location as 

specified by the Resource Manager.

ÿ Advises Supply Coordinator and Procurement Team on contracts and 

questions of administrative law.

Distribution 

Group 

Ensures delivery of resources by overseeing routing, transportation, collection, 

sorting/aggregating, storage, and inventory. 

ÿ When notified of an emergency, reports to the EOC or other location 

specified by the Resource Manager.

ÿ Transports resources, as requested.

ÿ Controls movement of resources.

ÿ Performs materials-handling work.

Distribution 

Coordinator 

ÿ Heads Distribution Group.

ÿ When notified of an emergency, reports to the EOC or other location 

specified by the Resource Manager.

ÿ Oversees transportation and physical distribution of resources.

ÿ Ensures facilities are activated as directed by Resource Manager.
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-15

ÿ When multiple scene emergencies or disasters occur, establishes liaison 

with all Incident Command Staging Officers to monitor location,

passage, and inventory of resources.

ÿ Monitors location, passage, and inventory of resources.

Emergency 

Manager 

Assists the Resource Manager as needed during response operations. 

Department of 

General 

Services or 

equivalent 

Provides knowledgeable staff to serve on Supply Group (Supply Coordinator, 

Procurement Team), Distribution Group (warehousing, etc.) and in other

capacities as appropriate.

Office of 

Personnel

and Job 

Service

Provide knowledgeable staff for Personnel Team to obtain human resources.

Comptroller's 

Office or 

equivalent 

Provides knowledgeable staff to serve as Financial Officer (and associated 

support).

Legal Counsel 

or equivalent

Provides expert in contracts and administrative law to assist Supply Group's 

Procurement Team.

Office of 

Economic 

Planning or 

equivalent 

Provides knowledgeable staff to serve on Needs Group.

Police Provides escort and security as appropriate for the delivery, storage, and
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-16

Department or 

equivalent 

distribution of resources.

Department of 

Transportatio

n or 

equivalent

ÿ Provides knowledgeable staff to serve on Distribution Group.

ÿ Assists in procuring and providing transportation.

All Agencies ÿ Provide staff knowledgeable in a particular resource category to serve 

as Needs Liaisons and/or Procurement Team members, as appropriate.

ÿ Provide updated emergency resource listings on a regular basis or as 

requested by Resource Manager.

ÿ Make personnel/resources available as needed in an emergency.

Administration 

and Logistics

This section addresses the administrative and general support requirements for 

carrying out resource management tasking.

Administration The following specific areas should be addressed:

Reports and records. The annex should address what kinds of records must be 

kept, for how long, in what form (e.g., hard copy or database); what 

reports should be made, from whom to whom, in what format; and how 

records vital to operations will be protected. (Note: Hard copy

"resource manuals" are useful, but where possible jurisdictions should 

take advantage of the search

and sorting capacities of a computer database in maintaining the resource

inventory.) 

ÿ Finance. The annex should address the jurisdiction's financial policies, 

e.g., regarding use of funds already appropriated and how contingency 

funds will be made available. 

ÿ Procurement. The annex should note the jurisdiction's policies on
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-17

emergency procurement. 

ÿ Hiring and Other Personnel Issues. The annex should note waivers 

of normal procedure for matters of hiring, assigning work that is not in 

an employee's job description or at an employee's normal duty station, 

and the like.

 

Logistics The following specific areas should be addressed:

ÿ Staffing.

• Core Cadre. The annex should identify by position what staff 

will be required to perform the resource management function, 

regardless of the nature or scope of the emergency. 

• Maximum Complement. The annex also should set forth an 

estimate, based on the kinds and number of facilities that would 

be activated, of the maximum number of personnel that would 

be needed to support the resource management function. A 

breakdown by facility would be useful. 

• Augmentation. The annex should indicate the means the

jurisdiction will use to meet a staffing shortfall in the resource 

management function, be it reassignment of jurisdictional

personnel, aid from other jurisdictions, area volunteers, or use 

of the National Guard. 

ÿ Facilities.

• Minimum. The annex should spell out where basic resource 

management activities will be conducted, if locations other than 

the EOC are involved (e.g., if procurement activity will be

conducted from the Department of General Services, with

communications links to the EOC). 

• With significant influx of aid expected. The Resource

Manager may direct that other facilities be activated, such as the 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-18

following:

− Point of Arrival. The FRP refers to the "point of

arrival" as "the designated location (typically an airport) 

within or near the disaster-affected area where newlyarriving staff, supplies, and equipment are initially

directed." While meant for States expecting Federal

resources, this FRP concept is a useful planning

consideration for any jurisdiction that could expect to 

receive significant mutual aid: some idea must be had of 

where to report first.

 

− Mobilization Centers. A mobilization center is a

designated location for receiving and processing

resources and personnel prior to their deployment to a 

staging area or incident site. It may coincide with the 

point of arrival. For arriving personnel, the mobilization 

center may have to provide briefings, billeting, and

feeding. Local jurisdictions should identify potential

mobilization centers.

− Staging Areas. At staging areas, personnel and

equipment are assembled for immediate deployment to 

an operational site in the affected area. Local

jurisdictions should identify potential staging areas;

options include fairgrounds and academic facilities. 

− Warehouses and other storage facilities. Aid from 

governmental sources should not exceed the capacity of 

mobilization centers, staging areas, the incident site, and 

the jurisdiction's agencies to absorb it. However, the 

jurisdiction may wish to make arrangements with

realtors to provide a regular update on warehouse

availability. Alternatives include making arrangements 

with military installations and neighboring jurisdictions to 

assist with any logistical excess. 

• With extensive donations expected. At the State level, the 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-19

Resource Manager and/or Donations Coordinator may require 

the following facilities to handle donations, as discussed in the 

Donations Management Guidance Manual. Local

jurisdictions should consult the State on how best to support the 

State donations management framework; however, large

jurisdictions may wish to make similar provisions for handling 

donations within the jurisdiction. 

− Donations Coordination Center/Telephone Bank. At 

a Donations Coordination Center, representatives of the 

jurisdiction's government and volunteer agencies screen 

unsolicited donations offers and match them with

possible recipient organizations. States choosing to

activate an 800 telephone number might set up the

telephone bank at this facility.

− Checkpoints. Checkpoints permit inspection,

scheduling, and (re)routing of inbound trucks and other 

vehicles bearing donations. At the State level, potential 

locations include weigh stations and rest areas.

− Donations Receiving Area(s). A donations receiving 

area serves as a collection point and sorting area for 

unsolicited donations of goods. It should be located as 

close to air, water, and rail transport facilities as is

feasible outside the disaster area. Other considerations 

include parking (for the large number of workers

required), covered storage space, and ample room for 

trucks to maneuver. State fairgrounds have been used 

as donations receiving areas. Since fairgrounds also 

have been suggested as prime locations for staging

areas, it should be noted again that jurisdictions must 

coordinate the logistical demands of donations

management with those of the entire resource

management system. (Note: Some people in donations 

refer to this facility as a “reception center”; however, 

that could cause confusion with the use of the same 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-20

term in evacuation.) 

− Warehouses. Where possible, the donations effort

should rely on volunteer agencies' warehousing

capacity. However, should additional space be

necessary--particularly when disposal of donations 

becomes difficult--the jurisdiction should have on hand 

information from realtors or a real estate board to

locate suitable warehousing space.

− Distribution Centers. Goods are distributed directly 

to victims at distribution centers. Churches and

volunteer agencies' facilities are good locations. In

Federally declared disasters, distribution centers and

Disaster Recovery Centers (DRC) can be collocated or 

fairly near one another to allow comprehensive service 

delivery to the affected populace.

• Lodging. An influx of volunteers and government workers 

creates a need for billeting. Provision should be made for this at 

points of arrival, mobilization centers, and even donations

receiving areas; the space can be reclaimed for other purposes 

if sufficient hotel, church, or school gym space just outside of 

the affected area is available

ÿ Communications. As a potentially far-flung enterprise, resource

management depends on communications. The number of telephone 

lines, fax machines, and other standard equipment required will depend 

on the anticipated size of the jurisdiction's resource management

operation. Special considerations include data modems for a State 

Donations Coordination Center (to receive information from the national 

database), a 1-800 trunk line for a State Donations Coordination

Center (to receive calls), citizens band radio and dispatching for

communicating with trucks, and internal communications systems for 

warehouses (such as walkie-talkies or a public address system). 

ÿ Computers and software. Resource management involves large

amounts of information best handled with databases (resource listings) 
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-21

and spreadsheet programs (financial management, inventory control). 

Reports will require a word processing program. 

ÿ Office equipment and supplies. 

ÿ Forms. Where hard copy forms are used, each facility should have a 

sufficient supply on hand from the start (e.g., in a "go kit"). Including the 

forms in the EOP also permits reproduction, if photocopiers are

available. 

Plan 

Development 

and 

Maintenance

ÿ Transportation. The annex should discuss what transportation

resources are available for resource management.

Much ongoing activity is necessary to support the resource management

function, including: conducting planning meetings; updating resource listings; 

monitoring potential resource crises; developing and negotiating standard

contracts and leases, memoranda of understanding, and mutual aid agreements; 

developing ready-to-use public information materials (or at least templates); 

writing and refining SOPs; training; and exercising the function. Responsibility 

for this activity should be assigned in this section. 

The Emergency Manager should have responsibility for calling planning meetings 

on advice from the Resource Manager, who should determine how often to 

hold meetings. Meeting organizers should strive to include representatives from 

groups such as private industry, professional and labor associations, volunteer 

groups, and the media (at least when donations are an issue). 

The annex may specify what triggers the need to revise the annex, including plan 

review, exercise results, post-event critiques, changes in the hazard situation, or 

the incorporation of new players and new technology.

Authorities 

and 

References

Authorities and references that might be included, cited, or consulted include:

Authorities ÿ Robert T. Stafford Disaster Relief and Emergency Assistance Act.

ÿ State/local emergency legislation, in particular matters of eminent
Attachment H: Resource Management

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 5-H-22

domain, rationing and price controls, and the like.

ÿ State/local procurement regulations, in particular any provisions for an 

expedited process (e.g., suspension of "full and open competition"

requirements).

ÿ State/local personnel regulations, in particular any special hiring

authorities.

References ÿ FEMA/National Donations Steering Committee, Donations 

Management Guidance Manual, January 1995.

ÿ The Federal Response Plan, April 1992.

ÿ State/local resource listing compilation, if maintained under separate 

cover.

ÿ State/local compilation of memoranda of agreement.

ÿ Other resource directories (e.g., from real estate board).

ÿ Suggested attachments.

• Map identifying key facilities and transportation routes (perhaps 

with overlay of likely hazard areas, if known).

• Organizational chart.

• Staffing charts.

• Resource requirements for the resource management function.

• Sample forms (e.g., resource inventory, donations intake form, 

report formats).
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-1

Chapter 6

Hazard-Unique Planning Considerations

Introduction

This chapter provides guidance for developing hazard-specific appendices. 

Hazard-specific appendices offer a means of extending functional annexes to 

address special and unique response procedures, notifications, protective

actions, emergency public information, and other needs generated by a

particular hazard. They allow the jurisdiction, in its EOP, to address priorities 

identified through hazard analysis and to meet detailed regulatory requirements 

associated with some hazards. A hazard-specific appendix should be prepared 

for any functional annex that does not, by itself, give enough information to 

perform the function adequately in the face of a particular high-priority hazard. 

Some hazards may require that appendices be prepared for various functional 

annexes; others may affect planning for only one or two functions. Appendices 

may be long or very brief depending upon need. 

Think of hazard-specific appendices as supplements to functional annexes. 

Planning considerations common to all hazards should be addressed in 

functional annexes, not repeated in hazard-specific appendices.

Development of a Hazard-Specific Appendix

The decision to develop a hazard-specific appendix should be based on special 

planning requirements not common to other hazards addressed in the functional 

annex, and on regulatory considerations that may require extensive, detailed 

planning that is inappropriate for inclusion in the annex.

As the planning team develops each of the functional annexes, close scrutiny

must be given to the "unique" characteristics of those hazards that require 

special attention. Further, the planning team must know the regulatory

requirements associated with the hazards their jurisdiction faces. 

This approach promotes consistency and continuity and provides the flexibility 

to include a hazard-specific appendix or not, based on the need to cover 

information that is relevant to the hazard, but is not appropriate for inclusion in 

the functional annex.
Chapter 6: Hazard-Unique Planning Considerations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-2

Content of a Hazard-Specific Appendix

The content of a hazard-specific appendix focuses on the special planning needs 

generated by the hazard and should not duplicate the information in the

functional annex. The appendix contains unique and regulatory response

planning details that apply to a single hazard. It addresses the essential

operational actions that must be accomplished to facilitate the successful

completion of a particular response function. As appropriate, the appendix 

should quantify the risk area, geography, and demography considerations that 

apply to the hazard.

It is recommended that hazard-specific appendices follow the same structure--

i.e., include, as appropriate, the same content sections (Purpose, Situation and 

Assumptions, Concept of Operations, Organization and Assignment of

Responsibilities, Administration and Logistics, Plan Development, and

Authorities and References)--as the functional annexes. 

Tabs may be used to: identify hazard-specific risk areas and evacuation routes; 

specify provisions and protocols for warning the public and disseminating

emergency public information; and specify the types of protective equipment 

and detection devices for responders, etc. Tabs serve as work aids, and 

include such things as maps, charts, tables, checklists, resource inventories, and 

summaries of critical information. 

The responsibility for making the decision on what to include in a hazardspecific appendix is vested with the jurisdiction's planning team. The flexibility 

of the planning approach described in this Guide should make it possible to 

accommodate and satisfy:

ÿ The planning requirements associated with unique aspects of hazards 

and with various regulatory authorities.

ÿ The different constituencies in the jurisdiction's emergency response 

organizations. 

ÿ The members of the planning team.
Chapter 6: Hazard-Unique Planning Considerations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-2

Table 6-1 identifies the core functional annexes discussed in Chapter 5, and 

provides a synopsis of the typical hazard-specific planning considerations that 

are associated with them. The planning team should consider Table 6-1

when making its decision on the kinds of information to be included in the 

appendices that they deem it is appropriate to prepare.

Description of Unique and Regulatory Planning Considerations 

The attachments provide a brief summary of seven significant hazards that 

threaten many communities in the United States. The information provided on 

each of these hazards focuses on the specific types of planning considerations 

that should be examined, analyzed, and applied, as appropriate, in the

development of hazard-specific appendices. The format for each attachment 

has been structured to be consistent with the planning considerations outlined 

above. Please note that what follows is only summary information. Information 

on other hazards your jurisdiction faces and additional relevant data on the 

hazards addressed in this chapter should be readily available to the planning 

team. Much of the needed information should have been gathered as part of the 

jurisdiction's hazard analysis. For additional information, the planner should 

review the applicable hazard-specific planning guides and other relevant

technical manuals to gain more insight into the hazards and to obtain detailed 

information on the emergency response planning considerations associated with 

each one.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-A-1

Attachment A

Earthquake

The Hazard

Nature of the 

Hazard

A sudden, violent shaking or movement of part of the earth's surface caused by 

the abrupt displacement of rock masses, usually within the upper 10 to 20 miles

of the earth's surface. The earthquake hazard may consist of:

Ground 

Motion

Vibration and shaking of the ground during an earthquake is the most farreaching effect and causes the most damage to buildings, structures, lifelines, 

etc.

Ground 

Surface Fault 

Rupture 

The ground shaking is the result of a rupture of a fault beneath the surface. 

When the ground shaking results in a rupture of the surface of ground, an

opening of up to 20 feet may occur.

Liquefaction The ground temporarily loses its strength and behaves as a viscous fluid (similar 

to quicksand) rather than a solid. 

Landslides

 

Sometimes an earthquake causes a landslide to occur. This involves a rock fall 

and slides of rock fragments on steep slopes.

Tsunamis Tsunamis are sea waves produced by an undersea earthquake. These sea 

waves caused by the earthquake can reach 80 feet and can devastate coastal 

cities and low-lying coastal areas. 

Secondary 

Hazards

Consequences of earthquakes may include fire, HAZMAT release, or dam

failure, among others. 

Risk Area Wide areas of the United States have some vulnerability to earthquakes. Thirtynine States face the threat of a major damaging earthquake and are considered 

to be earthquake hazard areas. The planning team in each of the jurisdictions in 

these States should use information from their State's earthquake hazard

identification study to quantify the seismic hazard their community faces. This 

study addresses the magnitude, estimates the amount of ground shaking that 
Attachment A: Earthquake

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-A-2

could occur, and delineates the associated geological hazards (landslide,

liquefaction, etc.) that may occur as a result of a catastrophic earthquake. 

Further, a vulnerability assessment should have been prepared as part of the 

hazard analysis. The assessment provides the planning team information related 

to probable consequences and damages their jurisdiction may suffer if struck by 

an earthquake. It focuses on casualties and injuries; potential building losses 

and identifies the buildings most vulnerable to seismicity (including critical

facilities such as hospitals, EOCs, mass care centers, emergency services

organizations' work centers, water and waste management plants, power

companies, etc.); medical needs versus available medical resources; loss of

utilities and replacement/repair time; etc. caused by the earthquake and the 

collateral hazards it may trigger (e.g. fires, dam or levee failure, tsunamis,

HAZMAT spills, etc.). This information will help the team develop the

appropriate information for inclusion in the EOP.

 

Earthquake Unique Planning Considerations

This section contains a listing of the functional annexes that typically would 

require the preparation of a hazard-specific appendix for earthquakes. It also 

identifies the unique and/or regulatory planning considerations that should be 

examined by the planning team and used, as appropriate, when preparing

earthquake-specific appendices.

Direction and 

Control

For this hazard it is essential for emergency response personnel to take

immediate action to gather damage assessment information. This information is 

needed to determine the severity and extent of injuries and damages. Further, 

this data gathering effort should provide much of the information decision

makers will need to implement and prioritize response actions for: US&R 

activities, access control and re-entry to the impacted area, debris clearance, 

restoration of utilities and lifeline repairs, and the inspection, condemnation, and 

or demolition of buildings and other structures. 

Therefore, provisions should be made, as appropriate, to address the following 

planning considerations in one or more appendices to a direction and control 

annex:

Damage Conduct of ground and aerial surveys to determine the scope of the damage, 
Attachment A: Earthquake

SLG 101: Guide for All-Hazard Emergency Operations Planning (3/96)

page 6-A-2

Assessment casualties, and the status of key facilities.

Search and 

Rescue

Removal of trapped and injured persons from landslides, buildings collapses, 

and other structural collapses, administering first aid, and assisting in

transporting the seriously injured to medical facilities. This activity involves the 

use of professional and volunteer search teams including the use of dog teams. 

Consideration should be given to:

ÿ Use of damage assessment information to identify the facilities and areas 

where US&R operations are to be conducted and to establish a priority 

for conduct of these operations.

ÿ Request for Federal assistance to perform US&R operations.

Major consequences associated with an earthquake are the collapse of

buildings and other structures, and landslides. In a metropolitan area that is 

struck by a major earthquake many hundreds to thousands of people could be 

trapped. These trapped people need immediate assistance. In such situations, 

it is likely that local and State governments would be overwhelmed by the 

demand for emergency services. Further, most jurisdictions do not have a 

sufficient quantity of specialized equipment or enough trained teams available to 

accomplish the large-scale search and rescue operations that would be needed 

to respond to a catastrophic earthquake. In order to assist State and local 

governments to accomplish this critical lifesaving activity, the Federal

Government has established Federal US&R teams. These teams are available 

to State and local jurisdictions upon request. The FRP’s ESF-9 includes 

provisions for deploying Federal US&R teams. These teams augment State 

and local emergency response efforts to locate, extract, and provide for the 

immediate medical treatment of victims trapped in collapsed structures.

Access 

Control and 

Re-Entry

This section deals with the immediate actions to be taken, as soon as conditions 

permit, in the area that was severely impacted by an earthquake. Relevant 

considerations include:

ÿ Control of access to the area until it is safe. Only those people directly 

involved in emergency response operations should be allowed to enter. 
Attachment A: Earthquake

SLG 1-XX: Guide for All-Hazard Emergency Operations Planning (3/96)

page 6-A-3

ÿ Establishing a protocol for determining the appropriate time to allow 

evacuees and the general public to re-enter the area that was severely 

impacted.

Debris 

Clearance

The identification, removal, and disposal of rubble, landslides, wreckage, and 

other material which block or hamper the performance of emergency response 

functions should be a high priority action. Activities may include:

ÿ Demolition and other actions to clear obstructed roads.

ÿ Repair or temporary reinforcement of roads and bridges.

ÿ Construction of emergency detours and access roads.

Inspection, 

Condemnation

, Demolition

Inspection of buildings and other structures to determine whether it is safe to 

inhabit or use them after an earthquake has occurred. Activities may include:

ÿ Inspection of buildings and structures which are critical to emergency 

services operations and mass care activities. Designate those that may 

be occupied and identify/mark those that are unsafe.

ÿ Inspection of buildings and structures that may threaten public safety. 

Identify/mark those that are unsafe and may not be occupied.

ÿ Inspection of dams and levees.

ÿ Inspection of less critical damaged structures. Designate those that may 

be occupied and identify/mark those that are unsafe to occupy.

ÿ Arrangements for the demolition of condemned structures.

Utilities and 

Lifeline 

Repairs

Restoration and repair of electrical power, natural gas, water, sewer, and 

telephone and other communications systems to minimize the impact on critical 

services and the public.

Warning Earthquakes usually occur without warning. Although some earthquakes have 

been successfully predicted, a reliable warning system has not been developed. 

However, it is appropriate for those jurisdictions located on the West Coast, 
Attachment A: Earthquake

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-A-5

Hawaii, and Pacific Insular areas where a large seaquake or undersea volcanic 

eruption may occur to include an appendix in their plan that will facilitate the 

issuance of a tsunami warning.

Emergency 

Public 

Information 

The flow of accurate and timely emergency information is critical to the

protection of lives and property in the wake of a catastrophic earthquake. This 

section deals with the provisions that should be included in the plan for the 

preparation and dissemination of notifications, updates, warnings, and

instructional messages. The following planning considerations should be

examined and addressed, if appropriate, in one or more appendices to an EPI 

annex:

ÿ Survival tips for people on what to do during and immediately after an 

earthquake.

ÿ Warnings and advice on the continuing threat of fire, unsafe areas, 

building collapse, aftershocks, and other hazards.

Evacuation Immediately following an earthquake people may need to be evacuated. People 

should be evacuated from structures that have been damaged and are likely to 

receive more damage when hit by one or more of the aftershocks. An appendix 

to an evacuation annex should address special provisions for moving the

residents of custodial facilities (hospitals, jails, mental health facilities, nursing 

homes, retirement homes, etc.) following an earthquake.

Mass Care The information gained from the vulnerability assessment should be used to 

ensure the following needs are addressed, if appropriate, in one or more

appendices to a mass care annex:

Safe Location

of Facilities 

If possible, identify mass care facilities in low seismic risk areas that are also out 

of the way of secondary effect threats (e.g., flooding from a damaged dam).

Structural 

Safety 

If the facilities selected for use are located within the earthquake hazard area, 

ensure that a structural engineer, knowledgeable of the earthquake hazard:

ÿ Identifies facilities for use that are structurally sound, well retrofitted or 
Attachment A: Earthquake

SLG 1-XX: Guide for All-Hazard Emergency Operations Planning (3/96)

page 6-A-5

built to code.

ÿ Ranks the facilities based on the amount of earthquake resistance/

protection each one offers.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-B-1

Attachment B

Flooding and Dam Failure

The Hazard 

Nature of the 

Hazard

Flooding occurs when normally dry land is inundated with water (or flowing 

mud). Flooding may result from: bodies of water overflowing their banks, 

including artificial ones like dams and levees; structural failure of dams and 

levees; rapid accumulation of runoff or surface water; hurricane-caused storm 

surges or earthquake-caused tsunamis; or erosion of a shoreline. (Coastal

flooding and erosion are not treated in this attachment.) Typically, the two 

parameters of most concern for flood planning are suddenness of onset--in the 

case of flash floods and dam failures--and flood elevation in relation to

topography and structures. Other factors contributing to damage are the

velocity or "energy" of moving water, the debris carried by the water, and 

extended duration of flood conditions. Flooding can happen at any time of the 

year, but predominates in the late Winter and early Spring due to melting snow, 

breakaway ice jams, and rainy weather patterns.

Risk Area All States and territories are at risk from flooding. Apart from a rainy climate, 

local risk factors, usually present in combination, include:

Rivers, 

Streams, and 

Drainageways

These are bodies of water often subject to overflowing. The size of the stream 

can be misleading; small streams that receive substantial rain or snowmelt, 

locally or upstream, can overflow their banks. High-velocity, low elevation 

flooding can be dangerous and damaging. Six inches of moving water can

knock a person off his or her feet; 12 inches of water flowing at 10 miles per 

hour carries the force of a 100 mile-per-hour wind, although the force would be 

distributed differently on obstacles.

Dams and 

Levees

There are 74,053 dams in the United States, according to the 1993-1994 

National Inventory of Dams. Approximately one third of these pose a "high" or 

"significant" hazard to life and property if failure occurs. Structural failure of 

dams or levees creates additional problems of water velocity and debris. 
Attachment B: Flooding and Dam Failure

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-B-2

Steep 

Topography 

Steep topography increases runoff water velocity and debris flow. Lack of 

vegetation to slow runoff is another factor. Alluvial fans, making up twenty to 

thirty percent of the Southwest region, show these characteristics and face the 

additional complication of shifting drainage patterns and erosion. 

Cold Climatic 

Conditions 

Apart from snowmelt, 35 northern States face flooding problems associated 

with ice jams. In the Spring, ice breaks away and then collects at constriction 

points in rivers and streams (i.e., bends, shallows, areas of decreasing slope, 

and bridges); by trapping water behind it and then later giving way, an ice jam 

heightens flood levels both upstream and downstream. Ice jams occur in the 

Fall with "frazil ice" (when a swift current permits formation of ice cover, but ice 

is carried downstream and attaches to the underside of ice cover there) and in 

Winter when channels freeze solid. 

Identifying 

Hazards

A jurisdiction's susceptibility to floods--riverine floods, ice jam floods, debris 

jam floods, flash floods--will in most cases be a matter of historical record, as 

will flood elevations. (However, planners must be alert to development

upstream or extensive paving over of the ground that used to absorb runoff.) 

The NWS maintains a list of communities with potential flash flood problems, 

and stream flow data for large watersheds is kept by the USGS in cooperation 

with State and local agencies. Results of the Corps of Engineers' dam survey, 

as well as subsequent work done by many States, should be available to permit 

plotting of dams with an evaluation of the risk they pose. Planners have access 

to the National Flood Insurance Program's (NFIP) Flood Insurance Rate Maps 

(FIRM) and Flood Hazard Boundary Maps (FHBM), USGS topographic

maps, and soil maps prepared by the Soil Conservation Service to use as base 

maps.

Estimating 

Vulnerable 

Zones 

Using the NFIP's maps and Flood Insurance Studies (FIS) as a base, the 

planning team--consulting with an engineer for technical analysis--should plot 

dams and levees as applicable, then adjust inundation levels behind levees and 

progressively downstream of the dam. Where ice jams are a problem, base 

flood fringe boundaries should be broadened to account for higher potential 

flood elevations. Also, despite shallow flood elevations, it is important to map 

alluvial fans as high risk areas. Note, too, that areas prone to flash flooding 

from small streams and drainage ways may not always have been mapped as 

such by the NFIP. See FEMA 116, Reducing Losses in High Risk Flood 
Attachment B: Flooding and Dam Failure

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-B-3

Hazard Areas: A Guidebook for Local Officials for discussion of models and 

additional bibliography.

 Flooding and Dam Failure Unique Planning Considerations

This section contains a listing of the functional annexes that typically would 

require the preparation of a hazard-specific appendices for flooding and dam 

failure. It also identifies the unique and/or regulatory planning considerations 

that should be examined by the planning team and used, as appropriate, when 

preparing appendices for flooding and dam failure.

Direction and 

Control

The extent of the initial response will depend on warning time, which varies with 

the cause of the flooding and the distance a jurisdiction is from the origin of the 

flooding. Intense storms may produce a flood in a few hours or even minutes 

for upstream locations, while areas downstream from heavy rains may have 

from 12 hours to several weeks to prepare. Flash floods occur within six hours 

of the beginning of heavy rainfall, and dam failure may occur within hours of the 

first signs of breaching, but floods from snowmelt can take months to develop. 

The EOPs of jurisdictions located downstream of a heavy flood source should 

address the following planning considerations in one or more appendices to a 

direction and control annex:

Floodfighting Relevant floodfighting considerations include:

ÿ Obtaining and keeping current a list of all dams in or near the

jurisdiction, by location and name.

ÿ Coordination with a dam’s staff during disaster or disaster threat

situations to facilitate expeditious notification and the exchange of

information.

ÿ Maps that identify the likely areas to be inundated by flood waters.

ÿ Identification of potential locations for the placement of temporary

levees and inclusion of this information on the appropriate maps. 
Attachment B: Flooding and Dam Failure

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-B-4

ÿ Obtaining a labor force to perform flood fighting tasks associated with 

building a levee (e.g. fill and place sand sandbags to prevent flooding). 

ÿ Obtaining assistance from the U.S. Army Corps of Engineers to build 

temporary emergency levees.

Search and 

Rescue

Conduct aerial and waterborne search and rescue once flooding occurs. Include 

provisions for the rescue of stranded animals and the disposal of dead ones.

Continuity of 

Operations

Address the relocation of government resources, vital records, and equipment 

to assure continuation of services and to prevent damage or loss.

Inspection and 

Condemnation

Structures left standing may still have been weakened by water pressure and 

debris flows. Building interiors will be filled with mud and filth, and some 

building materials will be waterlogged. 

 

Therefore, it will be necessary to inspect buildings and other structures to 

determine whether they are safe to inhabit after a flood has occurred. Activities 

may include:

ÿ Identifying buildings and structures that may threaten public safety.

ÿ Designating those buildings and structures that may be occupied.

ÿ Identifying/marking those buildings and structures that are to be

condemned.

Warning The NWS is responsible for most flood warning efforts in the United States. 

For large river systems, hydrological models are used by River Forecast

Centers. For many--not all--smaller streams, the NWS has developed a 

system called ALERT (Automated Local Evaluation in Real Time) that does not 

rely on volunteer observers. However, some communities may still need to use 

volunteer observers to monitor water levels, the effectiveness of the levee

system, or even to back up automated systems. The following planning

considerations should be addressed, if appropriate, in one or more appendices 

to a warning annex:
Attachment B: Flooding and Dam Failure

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-B-5

Automated 

Warning

Include a listing that identifies location and telephone numbers for all automated 

dam and river warning devices within or upstream of the jurisdiction, if available.

Use of 

Volunteers

If the jurisdiction relies on a volunteer warning network an appendix should 

describe:

ÿ Composition and locations of each team in the network.

ÿ How and when the network teams are activated (e.g., automatically 

with an NWS flood watch or as directed by the Emergency Manager).

ÿ The type of information to be reported and the frequency of reporting.

ÿ The means established to facilitate reporting.

ÿ How warning information is passed on to response organization

members.

ÿ How the warning data received will be disseminated as emergency

public information.

Dam Failure In jurisdictions that are vulnerable to flooding from dam failure, an appendix 

should include provision for: 

ÿ Alerting the Warning Coordinator and other key members of the

emergency management staff when the local authorities receive

notification that a problem exists or may occur at the dam.

ÿ Disseminating emergency warning information (to the public and other 

key response personnel) received from the dam's emergency

management staff. Typically, a warning message should address a

serious situation that could develop (alert) or inform the audience when 

an excessively high runoff occurs or a dam failure threatens (warning).

ÿ Coordinating with the PIO to facilitate the timely warning of the 
Attachment B: Flooding and Dam Failure

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-B-6

population at risk from dam failure. 

Emergency 

Public 

Information

Public information begins with communication of risks to the community, to 

potential home buyers, and to applicants for construction permits. Knowledge 

of being in a flood zone, of being downstream of a dam, of being protected by 

an inadequate levee, and the like, may rivet attention on the rest of the public 

information strategy. The population should be educated about what the levels 

of warning imply, should know how to interpret a predicted flood level as it 

relates to their property, and should be informed about expedient loss-reduction 

measures they can apply to their property. 

Provisions must be made to prepare and disseminate notifications, updates, and 

instructional messages as a follow-up to the original warning. The following 

planning considerations should be addressed, if appropriate, in one or more 

appendices to an EPI annex:

When Floods 

Develop 

Slowly

For flood emergencies that develop slowly enough to permit evacuation, 

provide the public information and instruction on:

ÿ Expected elevation of the flood waters, and instructions on when to 

evacuate.

ÿ Where to obtain transportation assistance to evacuate.

ÿ Designated travel routes and departure times.

ÿ Status of road closures (what routes must be avoided due to probable 

inundation). 

ÿ What to take or not to take to shelters (including options available for 

companion animals).

ÿ Location of mass care shelters and other assistance centers.

Transition to 

Recovery

As the initial response shifts to recovery, provide residents returning to their 

homes information on safety precautions associated with: 
Attachment B: Flooding and Dam Failure

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-B-7

ÿ Sanitary conditions.

ÿ Unsafe drinking water.

ÿ Use of utilities.

ÿ Electric fields created in water by downed power lines.

Evacuation If fast- and slow-developing floods are possible in a jurisdiction, protective 

action decisions must be based on the estimated time necessary for evacuation 

and the availability of shelter space above the estimated flood elevation. When 

complete evacuation is not feasible, citizens need to know where high ground is; 

when evacuation is feasible, planning should have accounted for routes facing 

possible inundation. In evacuation planning for floods, consideration must be 

given not only to critical facilities and custodial institutions but also to

recreational areas prone to flooding, whether because the site is physically

isolated or because visitors isolate themselves from communication.

Particular attention should be paid to critical facilities that are low-lying or in the 

path of projected debris flows. Transportation routes subject to flooding should 

also be noted, given the potential impact on evacuation and relief efforts.

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to an evacuation annex:

ÿ Maps that detail probable flood inundation areas and designated

evacuation routes.

ÿ Pickup points and government provided transport to move evacuees.

ÿ Provisions for moving the residents of custodial facilities (hospitals, jails, 

mental health facilities, nursing homes, retirement homes, etc.).

ÿ Coordination and implementation of mutual aid agreements with

adjacent jurisdictions to facilitate evacuation.
Attachment B: Flooding and Dam Failure

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-B-8

Mass Care The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a mass care annex:

Space/

Capacity

Relevant considerations include:

ÿ Identification of a sufficient number of mass care facilities to

accommodate the estimated number of people that may be evacuated.

ÿ Availability of shelter space for a prolonged (up to 90 day) period. 

Safe Location 

of Facilities

This involves designating shelters for use that are located on high ground

(beyond the worst case inundation estimates).

Health and 

Medical

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a health and medical annex:

ÿ Provisions to keep people informed of the health and sanitary conditions 

created by floods: flood waters may carry untreated sewage, dead 

animals, disinterred bodies, and hazardous materials. 

ÿ Monitoring water quality and sanitary conditions.

Resource 

Management

The following planning considerations should be addressed, as appropriate, in 

one or more appendices to a resource management annex:

ÿ Provisions for purchasing, stockpiling or otherwise obtaining essential 

flood fighting items such as sand bags, fill, polyethylene sheeting, and 

pumps (of the right size and type, with necessary fuel, set-up personnel, 

operators, and tubing/pipes).

ÿ Resource lists that identify the quantity and location of the items

mentioned above, as well as points of contact (day, night, and

weekend) to obtain them. 
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-1

Attachment C

Hazardous Materials

Given the technical nature of the HAZMAT threat, it is essential that the National Response Team’s 

NRT-1, Hazardous Materials Emergency Planning Guide, and the Environmental Protection

Agency's (EPA) Technical Guidance for Hazard Analysis be used as the principal source documents 

for addressing HAZMAT planning needs. Other helpful guides include the Handbook of Chemical 

Analysis Procedures, co-published by the Department of Transportation (DOT), EPA, and FEMA, 

and the planning section of the Guidelines for Public Sector Hazardous Materials Training, 

coordinated by FEMA under an agreement with DOT. The planning team should use the guides and 

this attachment to help facilitate the completion of the hazard analysis and to identify unique planning 

requirements that should be addressed in the EOP.

The Hazard

Working 

Definition of 

Hazardous 

Materials

Definition of a risk area for hazardous materials depends on defining "hazardous 

materials." Many Federal laws and regulations exist to help the planner do just 

that; however, since the various lists overlap and serve different purposes

(identifying acceptable quantities for "wastes" and "pollutants," reportable

quantities for "emergency releases," etc.), this chapter will use the term

"hazardous materials" in a broad sense to include:

ÿ Explosive, flammable, combustible, corrosive, oxidizing, toxic,

infectious, or radioactive materials

ÿ that, when involved in an accident and released in sufficient quantities,

ÿ put some portion of the general public in immediate danger from

exposure, contact, inhalation, or ingestion.

Off-site planning for radiological accidents at nuclear power plants is addressed 

in Tab 1 to Attachment F. Radiological protection planning for the nuclear 

conflict threat is addressed in Tab 2 to Attachment F. Planning for the release 

of lethal unitary chemical agents and munitions is addressed in Attachment E.

For a discussion of the different lists of hazardous materials, see EPA's A 

Review of Federal Authorities for Hazardous Materials Accident Safety, Chapter 
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-1

4. Note that substances not on these lists may still be hazardous.

Risk Areas Areas at risk for hazardous materials transportation incidents lie along highways, 

rail lines, pipelines, rivers, and port areas. A large number of States also are 

potentially involved with nuclear waste incidents, given the routing for shipments. 

 Jurisdictions with facilities that produce, process, or store hazardous materials 

are at risk, as are jurisdictions with facilities for the treatment, storage, or 

disposal of hazardous wastes. These risks are compounded by natural hazards 

(e.g., earthquakes, floods) or, for highway transportation of hazardous

materials, poor weather conditions. In addition, other kinds of facilities (e.g., 

for natural gas) may contribute to risks posed by hazardous materials facilities.

Locating 

Hazardous 

Materials 

This section discusses information made available to planners under Federal 

law. States and localities may have additional or more stringent information 

requirements, and planners may wish to check with their State Emergency

Response Commission (SERC), State Environmental Protection Agency, State 

Department of Transportation, Public Service Commission, Radiological Health 

Division of the State Health Department, and the like for additional information. 

 Area Committees established under the auspices of the National Oil and

Hazardous Substances Pollution Contingency Plan (NCP) and the Oil Pollution 

Act (OPA) may provide additional resources in identifying areas at risk from a 

hazardous materials incident.

At Fixed 

Facilities

EPCRA, or Title III of the Superfund Amendments and Reauthorization Act 

(SARA), requires facilities to notify the SERC and LEPC if they have present 

any of the substances designated by the EPA as an "extremely hazardous 

substance" when the amount on hand exceeds the EPA-defined "threshold 

planning quantity." Facilities must submit to the appropriate LEPC, local fire 

department, and SERC a list of the "hazardous chemicals" (as defined by the 

Occupational Safety and Health Administration, or OSHA) on site in excess of 

threshold quantities or the OSHA-required material safety data sheets (MSDS) 

on each of these chemicals. In addition, facilities must provide the appropriate 

LEPC, local fire department, and SERC with an inventory form containing

general, aggregate (“Tier I”) information on amounts of the chemical present at 

the facility and their location, or (upon a request made to the facility by the 

LEPC, fire department, or SERC) more specific (“Tier II”) information. LEPCs 
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-3

may complete the general picture of the fixed facility hazard by obtaining data 

from EPA's Toxic Chemical Release Inventory and by reviewing previous

notifications of accidental releases of "hazardous substances" in excess of

"reportable quantities" (as defined in 40 CFR 302). Interviews with facility

emergency coordinators, fire and law enforcement personnel, and news

reporters also may be used to obtain needed information. 

On Transport 

Routes 

The LEPC is entitled to information from facilities subject to SARA Title III that 

may be necessary for emergency planning, and the LEPC is required by SARA 

Title III to address routes for transportation of extremely hazardous substances 

in emergency planning. Facility emergency coordinators may provide

information on frequency of shipments, form and quantity of shipments, and 

routes. Representatives of trucking, rail, air freight, and shipping industries also 

may assist. Planners should know of State and local route designations for 

hazardous materials shipments. Information is available from the Department of 

Energy (DOE) or the Nuclear Regulatory Commission on nuclear waste

shipment routes, and from DOT on the routes for and volume of shipments 

involving "highway route controlled quantities" (HRCQ) of radioactive material. 

Estimating 

Vulnerable 

Zones 

Having plotted the location of facilities and transportation routes with the

potential for hazardous materials incidents, planners can estimate vulnerable 

zones. The widest area of vulnerability would be for an airborne release. For 

airborne releases of acutely toxic chemicals, vulnerable zones would be plotted 

as circles around facilities--given uncertainty about wind direction--and as 

corridors along land transportation routes. Calculating the radii for these circles 

and corridors depends on knowing what concentration represents a "level of 

concern" for health effects, the quantity of material likely to be released, the 

likely rate of release, physical state of the material, elevation at which the release 

occurs, wind speed, and surrounding topography or construction. In

determining vulnerable zones, planners will want to use both worst case and 

more probable scenarios for the potential releases. Planners should take 

advantage of any hazard assessments completed by facilities themselves, as 

these can provide valuable information. 

The Risk Management Program under the Clean Air Act, Section 112(r), will 

require facilities to conduct hazard assessments for a selected list of about 140 

toxic chemicals. The facilities are not required to have completed these hazard 

assessments until May 1999.
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-4

Determining 

Vulnerability 

Once vulnerable zones have been plotted, planners can assess the possible 

consequences of potential hazardous materials incidents. In particular, planners 

should look at what critical facilities (e.g., hospitals, utilities and treatment plants, 

broadcast stations, police and fire stations, emergency operating centers) lie 

within the vulnerable zones; they should also note what facilities house people 

with special evacuation needs (e.g., schools, prisons, hospitals and nursing

homes). SARA Title III requires identification of facilities subject to additional 

risk due to their proximity to facilities that may release hazardous materials. 

Beyond the facility level, planners should consider the demographics of the 

population in the area (particularly with regard to age and language use) and the 

potential for property damage in the zone. They should also note the potential 

for contamination of drinking water supplies and other environmental

consequences. The vulnerable facilities, bodies of water, and other features 

should also be shown on a vulnerability map.

Assessing 

Risk 

Finally, planners will want to estimate the probability of incidents and the

severity of their consequences, in order to focus preparedness and prevention 

efforts. Probability estimates may be simply qualitative (i.e., "low," "medium," or 

"high"); in any case they can be based on the historical record of releases and 

incidents, on general transportation accident statistics for roads (and for airports 

and railways), on fault tree analyses or hazard operability studies shared by 

facilities, as well as on professional opinion. SARA Title III requires the LEPC 

to identify facilities (e.g., for natural gas) that, due to their proximity to facilities 

that may release hazardous materials, may contribute to risk; these should be 

considered in assessing risk. Potential consequences may be estimated from 

case studies of the worst incidents involving particular hazardous materials.

Hazardous Materials Unique Planning Considerations

This section contains a listing of the functional annexes that typically would 

require the preparation of a hazard-specific appendix for hazardous materials. It 

also identifies many of the unique and/or regulatory planning considerations that 

should be examined by the planning team and used, as appropriate, when

preparing appendices specific to hazardous materials. Note that, whatever the 

HAZMAT planning provisions adopted by the jurisdiction, SARA Title III 

requires that HAZMAT emergency planning include training programs and

schedules for response and medical personnel, as well as methods and
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-5

schedules for exercising the provisions.

Direction and 

Control

For this hazard, OSHA's Hazardous Waste Operations and Emergency

Response Standard (29 CFR 1910) requires that an ICS be used for on-scene 

management of response activities. A description of ICS is provided in

Attachment A to Chapter 5. SARA Title III requires a community's plan to 

include the designation of a community emergency coordinator and facility

emergency coordinators, who shall make determinations necessary to

implement the plan.

Response 

Actions

Response actions are triggered when the organization that is responsible for 

managing HAZMAT response operations is notified. Response is initiated 

when an incident or accident report is received from an operations center in a 

facility that stores, manufactures, or uses hazardous materials or when a police 

officer, fireman, or member of an emergency services organization is informed 

of an emergency situation involving HAZMAT. SARA Title III requires

HAZMAT planning to address methods for determining the occurrence of a 

release and the area or population likely to be affected, procedures for timely 

notification of the community emergency coordinator by facility emergency

coordinators, and methods and procedures to be followed in response to a 

release.

Therefore, provisions should be made, as appropriate, to describe the on-scene 

management structure and address the following planning considerations in one 

or more appendices to a direction and control annex:

ÿ Identify and designate special technical experts (chemists, toxicologists, 

occupational health physicians, etc. to augment the response

organization. Where appropriate, private sector response organizations 

(chemical manufacturers, commercial cleanup contractors, etc.) should 

be part of the response organization.

ÿ Notify response organizations, public officials, and appropriate local 

and State organizations that are directly involved in the response.

• From the initial incident report, disseminate as much information 

as possible.
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-5

• If possible, identify the hazardous material involved and the 

severity (degree of threat to people, property, environment, 

etc.) of the accident before exposing response personnel to 

possible health hazards.

− For transportation accidents information sources include 

placards, container labels, cargo manifests, and shipping 

papers. These items provide initial information that can 

be checked against the North American Emergency 

Response Guidebook; shipping papers should also

include an emergency contact number. Also, if the 

above information is not visible or available, an

interview with the vehicle operator could provide the 

information needed.

− For fixed facility accidents, this information should be 

readily available from the responsible party. 

ÿ Initiate a response to the situation in accordance with the jurisdiction's 

ICS concept of operations for responding to HAZMAT accidents. 

Critical actions to address include:

• Upon arrival at the incident site, identifying the IC and notifying 

the EOC of the identity of the IC and the location of the ICP.

• Ensuring response personnel have and don the appropriate

protective gear (clothing and breathing apparatus). 

• Ensuring response personnel approach the incident site from

upwind and obtain the following information, if not already

known:

− The time of the release.

− The quantity released.
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-6

− Characteristics of the immediately endangered area

(e.g., body of water or dense residential/commercial

district nearby).

− Color and odor of vapors (if readily noticeable), and 

any health effects noted.

− Direction and height of any vapor cloud or plume

(observed and computer-projected).

− Weather and terrain conditions.

− Entry of material into the environment (water, drains, 

soil).

− Action already initiated by personnel at the scene.

• Ensuring unnecessary people at the site are moved away (in a 

crosswind direction) and denied entry. For transportation

incidents, the North American Emergency Response

Guidebook contains recommended initial isolation zone

distances for substances with poisonous vapors that are not 

burning and additional instructions in case of fire. 

• Establishing a Protective Action Zone, if necessary. This is an 

area in which people can be assumed to be at risk of harmful 

exposure, and in need of either in-place protective shelter or 

evacuation.

• Containing the hazardous material. For liquids, it may be

necessary to use ditches or dikes to contain spread, so that 

removal may take place later. It also may be necessary to cover 

some materials with tarps to prevent vapors from rising.

Additional 

Notifications 

Various Federal laws and regulations on hazardous materials require

notifications from the responsible party (employer, transporter, facility

manager)--not necessarily from local or State agencies. Local and State 
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-8

agencies may establish their own reporting requirements as well. The following 

are typical notifications jurisdictions may be responsible for or interested in

ensuring:

ÿ Chemical Releases. Notification should be made to the National

Response Center by the responsible party. Legal provisions also may 

exist for notification of specific State and local authorities.

• Comprehensive Environmental Response, Compensation,

and Liability Act (CERCLA). For hazardous substances

identified in the CERCLA list, a release that equals or exceeds 

the reportable quantity (as defined in 40 CFR 302) must be 

reported to the National Response Center.

• Emergency Planning and Community Right-to-Know Act 

(SARA Title III). Releases of Extremely Hazardous

Substances (under section 302 of the Act) or of CERCLA

hazardous substances must be made known to the SERC and 

the LEPC’s community emergency coordinator by the facility 

owner or operator. In a transportation accident, this

requirement is satisfied by contacting 911 or, if 911 is

unavailable, the local telephone operator.

• Clean Water Act. For hazardous substances (as listed in 40 

CFR 116.4) released into water in excess of reportable

quantities (established in 40 CFR 117.3), dischargers must

make an immediate report to the National Response Center. 

Notification must also be made to the Nuclear Regulatory

Commission if radioactive material spilled in a waterway

exceeds the reportable quantity.

ÿ General Transportation Accidents. Notifications are as above. In 

addition, the North American Emergency Response Guidebook

recommends contacting the Chemical Manufacturer's Association's

Chemical Transportation Emergency Center (CHEMTREC) with initial 

requests for assistance.
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-8

• Involving Radioactive Materials. Typically, notification

should be made to the State Department of Public Health so 

that detection and monitoring can take place. For incidents 

involving nuclear weapons, notification should be made to the 

nearest military base and to the Joint Nuclear Accident

Coordinating Center (JNACC). 

• Involving Infectious (Etiological) Agents. Local and/or State 

health departments should be notified. Officials in these

departments have the responsibility for notifying the Emergency 

Response Coordinator for the CDC.

Reentry to 

Areas Directly 

Affected by 

the HAZMAT 

Release 

Address the types of detection devices and systems that will be used to

determine when a toxic cloud has cleared a particular area and if the

concentration of the hazardous material in soils, drinking water, and sewage 

systems are at a safe enough level to permit return. Also address concerns such 

as:

ÿ Control of access to the area until it is safe. Only those people directly 

involved in emergency response operations should be allowed to enter.

ÿ Arrangements for ongoing site control, monitoring of the environment, 

and compliance with State and Federal regulations regarding disposal of 

the wastes.

ÿ Protocol for determining the appropriate time to allow evacuees and the 

general public to re-enter the area.

Decontamination

and Cleanup 

Relevant actions to be addressed are:

ÿ Establish "zones" for controlling contamination (hot zone, transition

zone, and clean zone).

ÿ Provide for handling and disposal of:

• Contaminated soil, water, and other items that could not be 

adequately decontaminated. 
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-10

• Contaminated clothing.

Request for 

Federal 

Assistance

If the situation exceeds the capability of the responsible State and local

authorities, assistance can be obtained through the National Response Center. 

In accordance with the NCP, upon receiving notification, the National

Response Center notifies the appropriate Federal On-Scene Coordinator

(OSC), who monitors private and State actions, provides support and advice, 

and may intervene to direct operations in rare instances when the situation

exceeds the capability of the responsible party or State and local government 

(or when the “responsible party” would be the Department of Defense (DOD) 

or DOE). Assistance may include support by the National Strike Force, 

including strike teams for oil spill response and a Public Information Assistance 

Team; Radiological Emergency Response Teams; salvage teams; scientific

support coordinators; and other specialized resources. 

For peacetime radiological emergencies, the Federal Radiological Emergency 

Response Plan (FRERP) provides a mechanism for DOE to dispatch

Radiological Assistance Program (RAP) teams in response to a State request 

for monitoring assistance.

Warning SARA Title III requires that HAZMAT emergency planning address

procedures for timely notification to the public that a release has occurred; this 

depends on facilities making immediate notification to State and local authorities. 

HAZMAT accidents generally occur without warning, and the speed at which 

events develop and effects spread varies from incident to incident. For smallscale occurrences, public notification may be made door-to-door, through 

mobile public address systems, or with portable megaphones. For larger-scale 

occurrences, a jurisdiction-wide warning system should be used. The following 

considerations should be addressed, if appropriate, in an appendix to a warning 

annex:

ÿ If used, description of and responsibility for activating a HAZMAT

warning system and its mode of operation (how it is activated, where 

located, number of warning devices (sirens, horns, whistles, etc.) in the 

system.
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-10

ÿ How timely warning information will be disseminated to the public, 

including immediate notification to local and State authorities.

Emergency 

Public 

Information

The flow of accurate and timely emergency information is critical to the

protection of lives and property immediately following a HAZMAT release. 

This section deals with the provisions that should be included in the plan for the 

preparation and dissemination of notifications, updates, and instructional

messages as a follow-up to initial warning. The following planning

considerations should be addressed, if appropriate, in one or more appendices 

to an EPI annex:

ÿ Informing the public of health hazards associated with the HAZMAT 

involved in the accident.

ÿ Providing personal protective actions instructions, including:

• Survival tips for people on what to do immediately after a 

HAZMAT release has occurred.

• Instructions for in-place protection (when to stay, where to 

stay, and what to do) when that option is chosen. 

• Event-specific evacuation instructions and information (routes, 

road closures, available transportation) when that option is

chosen. 

Note that LEPCs also will be working toward ensuring that area residents are 

informed of risks in the area, of first aid measures and in-place protective 

actions they can take, and of what to do if an evacuation is ordered in response 

to a hazardous materials incident.

Evacuation SARA Title III requires HAZMAT emergency planning to address evacuation, 

including provisions for a precautionary evacuation and alternative traffic routes. 

 Hazardous materials evacuation planning is little different from evacuation

planning in general. The most important difference is that initial movements 

should be crosswind. Another difference is that some transportation incidents 
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-12

may involve "selective evacuation" of a small area. The IC's authority to order 

such an evacuation should be clarified in the appendix, and provision should be 

made for the necessary coordination with the jurisdiction's EOC.

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to an evacuation annex:

ÿ Maps that identify primary and alternate evacuation routes for risk 

zones around locations that present a significant threat to the public.

ÿ Pickup points and government provided transport to move evacuees.

ÿ Provisions for moving special needs population (residents of custodial 

facilities such as hospitals, jails, mental health facilities, nursing homes, 

retirement homes, etc.) in a HAZMAT situation.

ÿ Tracking extent of evacuations ordered by the IC(s) during response 

operations.

Evacuation may not be always necessary or advisable: In-place protection

may be the preferred option. For some chemical hazards, using wet towels and 

shutting off air circulation systems may suffice; sometimes the cloud may move 

past more quickly than the evacuation can be effected. Also, if the hazardous 

materials incident results from another hazard event (such as an earthquake or a 

flood), any protective action decision will have to factor in additional concerns. 

If appropriate, an appendix or tab should be prepared that outlines the criteria 

that will be used to determine when to rely on in-place protection instead of 

evacuation to protect the public at risk. The following concerns should be 

addressed:

ÿ Health risks (respiratory and skin) associated with duration of exposure. 

ÿ Speed of onset and persistence of the HAZMAT.

ÿ Use of barriers (overhead protection, closing windows and doors,

seeking shelter in home basements, etc.) to reduce exposure.
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-13

Mass Care Any HAZMAT appendix to a mass care annex should address the location of 

shelters, to be upwind and/or out of range of the release. (In-place protective 

actions might be taken.)

Health and 

Medical

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a health and medical annex:

ÿ Provisions for keeping people informed of the health risks created by a 

HAZMAT release.

ÿ Designation of medical facilities that:

• Have the capability to decontaminate and medically treat

exposed persons. 

• Dispose of contaminated items (clothing, medical supplies, and 

other waste material). 

ÿ Monitoring of water quality and sanitary conditions in the areas affected 

by the HAZMAT release.

ÿ Provisions for continued medical surveillance of personnel performing 

decontamination tasks (including radiological monitoring, if appropriate).

 

Resource 

Management

SARA Title III requires HAZMAT emergency planning to include a description 

of emergency equipment and facilities in the community and at each facility in the 

community subject to Title III, along with identification of persons responsible 

for the equipment and facilities. The following planning considerations should be 

addressed, as appropriate, in one or more appendices to a resource

management annex:

ÿ Provisions for purchasing, stockpiling or otherwise obtaining essential 

HAZMAT response items such as spare or replacement protective gear 

for response personnel, detection devices and sampling equipment (for water, 

soil, etc.), decontamination supplies, etc. 
Attachment C: Hazardous Materials

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-C-13

ÿ Provisions for identifying agencies and contractors that could be

involved in cleanup operations and related tasks (including storage, 

cleaning, and reconditioning of response equipment and supplies). 

ÿ Resource lists that identify the quantity and location of the items

mentioned in the first bullet, above, along with points of contact (day, 

night, and weekend).
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-1

Attachment D

Hurricane 

The Hazard

Nature of the 

Hazard

The term "hurricane" describes a severe tropical cyclone and sustained winds of 

74 miles per hour (mph) or greater that occurs along the Gulf or East Coasts, in 

the Caribbean, or in the Pacific along the west coasts of Mexico and California 

or near Hawaii. Tropical cyclones in other areas of the world will have different 

names (e.g., typhoon). 

The hurricane season runs from the first of June until the end of November. Yet 

hurricanes have occurred in every month of the year.

Hazard Agents The primary hazard agents associated with a hurricane are the high, sustained 

winds; flooding from storm surge or heavy rains; battering from heavy waves; 

and a variety of secondary hazards: 

ÿ High Winds. The high winds impose significant loads on structures, 

both direct wind pressure and drag, and tend to propel loose objects at 

high velocity.

ÿ Flooding. The hurricane can cause many different types of flooding. 

Along the coast the flooding may occur from storm surge, wind-driven 

water in estuaries and rivers, or torrential rain. The flooding can be still 

water flooding or velocity flooding caused by wave action associated 

with wind driven water along the coast. The rainfall associated with a 

hurricane is on the order of 6 to 12 inches, with higher levels common. 

The rain may precede landfall by hours and may persist for many hours 

after landfall, causing severe flooding.

ÿ Heavy Waves. The storm may generate waves up to 25 feet high. 

These can batter the coastline, causing devastating damage to the

shoreline itself and to structures near the shore. The velocity of the 

water moving back and forth undermines the foundations of building and 

piers by removing the soil from around them. Debris driven inland by 
Attachment D: Hurricane

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-2

the waves can cause severe structural damage;

persons exposed to the moving water and debris are likely to receive severe 

injuries. 

ÿ Secondary Hazards. Hurricanes can also cause numerous secondary 

hazards. Tornadoes and electric power outages are common. 

Contamination of water supplies, flooding of sewage treatment facilities, 

and even dam failure may occur.

Estimating the 

Force of 

Hurricanes

The Saffir-Simpson scale is a widely recognized and accepted practical tool 

planners rely on to estimate the destructive forces associated with hurricanes. 

This scale classifies hurricanes into five categories based on wind speed and 

describes the destructive forces caused by wind, storm surge, and wave action 

for each category. The categories are listed below.

Hurricane Category Wind Speed (mph)

1 74-95

2 96-110

3 111-130

4 131-155

5 156+

A copy of the Saffir-Simpson scale is located at the end of this attachment, as 

Table 6-D-1. It should be used to obtain detailed information on each storm 

category. 

Risk Area To determine the risk area, each jurisdiction's planning team in the hurricane 

high-risk States should use the Hurricane Evacuation Technical Data Report, if 

available; FISs and FIRMs; and other local information sources such as maps 

and historical data on previous hurricanes and other storms that have caused 

injuries and/or loss of life, property damage, and disruption of essential services.

Assessment 

of Risk

A vulnerability assessment should be prepared. The assessment identifies the 

population, facilities, property, land area, etc. that are vulnerable to the hazard 

agents associated with a hurricane. The assessment provides the planning team 
Attachment D: Hurricane

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-3

the essential data it needs to determine the hurricane category for which the 

jurisdiction should prepare. It is vital that the team plan for the highest 

category of hurricane that is likely to strike the jurisdiction. The

assessment should:

ÿ Include a narrative description that identifies the parts of the jurisdiction 

that are subject to flooding caused by a storm surge. Also, maps that 

pictorially display this information. 

ÿ Identify the population at risk.

ÿ Identify essential services (fire, police, utility substations/plants, etc.) and 

special custodial facilities at risk (hospitals, nursing homes, jails and 

juvenile correction facilities, etc.).

ÿ Identify government resources such as essential equipment, tools,

stockpiles, vital records, etc., that may need to be moved to a safe 

location.

ÿ Identify facilities that must be evacuated such as trailer parks,

campgrounds, etc.

Hurricane Unique Planning Considerations

This section contains a listing of the functional annexes that typically would 

require the preparation of a hazard-specific appendix for hurricanes. It also 

identifies many of the unique and/or regulatory planning considerations that 

should be examined by the planning team and used, as appropriate, when

preparing hurricane-specific appendices.

General: 

Response 

Schedule

For this hazard a Hurricane Response Schedule is used in each of the hazardspecific appendices to describe the emergency response actions that should be 

accomplished when responding to a hurricane. The schedule establishes phases 

for the approaching hurricane, describes the activities to be completed during 

each phase, and sets the priority for the activities to be completed. Each phase 

covers a discrete period of time and details the specific actions that should be 

completed during the phase.
Attachment D: Hurricane

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-4

Time Phases Usually, phases correspond to hours before the estimated time of arrival of 

gale/hurricane force winds, immediate response actions after landfall of

hurricane force winds, through termination of all response activities. Typical 

phases include:

ÿ Awareness. 72-60 hours before the arrival of gale force winds (32-63 

mph).

ÿ Stand-by. 60-48 hours before the arrival of gale force winds. It is 

likely that a tropical storm watch would be issued during this period.

ÿ Response. 48 hours before arrival of gale force winds through

termination of the emergency. Hurricane watches and warnings would 

be issued by the NWS during this period.

 

Keying 

Actions to 

Time Phases

Each phase in the schedule:

ÿ Describes actions to be taken in the phase.

ÿ Identifies the official responsible for the action.

ÿ Defines the hours needed before arrival of gale force winds to carry out 

the activity.

ÿ Describes the priority of the action to be taken.

ÿ Contains other critical information that tasked organizations need to 

perform their assigned responsibilities.

Direction and 

Control

Initial actions are started before the beginning of the awareness phase when it 

appears likely that a specific storm could threaten the jurisdiction. They

continue through the response phase. Therefore, provisions should be made, as 

appropriate, to address the following planning considerations in one or more 

appendices to a direction and control annex:

ÿ Determine when response organizations should:

• Be placed on stand-by, partial activation, or full activation.
Attachment D: Hurricane

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-5

• Suspend or curtail day-to-day functions and services and focus 

on emergency response tasks.

ÿ Ensure response organizations can continue to perform assigned

operational tasks throughout all three phases ( e.g. secure, disperse, or 

relocate operations centers, vehicles, equipment, vital records, and

other essential resources).

ÿ Determine timing for taking action on the following critical concerns:

• Alerting the public.

• Closing schools and businesses.

• Restricting access to the risk area.

• Opening mass care facilities.

• Ordering an evacuation.

ÿ Assign specific tasking to each response organization for each phase. 

Critical concerns include:

• Decision for and timing to:

− Initiate coordination and implement mutual aid

agreements with other jurisdictions.

− Suspend non-emergency government services and

operations.

− Release non-emergency government employees from 

work.

• Reporting status/observations to the EOC.
Attachment D: Hurricane

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-6

Warning Since hurricanes are typically slow-moving storms, sufficient warning time will 

be available to allow those people at risk to evacuate and find a safe place to 

stay before the storm reaches land. 

The following provisions for notifying the public should be addressed, if

appropriate, in one or more appendices to a warning annex.

ÿ Roles and responsibilities of government spokespersons during each

phase.

ÿ Coordination with the NWS and media representatives to ensure timely 

and consistent warning information is provided. 

Emergency 

Public 

Information

This section deals with the provisions that should be made to prepare and 

disseminate notifications, updates, and instructional messages to follow up on 

the initial warning. 

The following planning considerations should be addressed, if appropriate, in

one or more appendices to an EPI annex:

ÿ Instructions for preparing homes/businesses (inside and outside) to

weather the storm. 

ÿ Hurricane-specific survival tips for those who choose not to evacuate 

(e.g., remember that the eye of the storm is not the end of the storm).

ÿ Instructions on implementing any hurricane-specific provisions for

evacuation (e.g., when and where to go). 

ÿ Locations of mass care facilities that have been opened.

Evacuation Where available, hurricane evacuation studies conducted by the States, the U.S. 

Army Corps of Engineers, the National Hurricane Center, and FEMA should 

be used to obtain vital evacuation planning data. The information gained from 

such studies and the risk assessment should be used to develop the planning 

instructions that will be relied upon to carry out an evacuation for those people 

at risk. These planning instructions detail the time-phased actions to be taken to 

evacuate people and relocate, if practical, essential services, special custodial 
Attachment D: Hurricane

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-7

facilities, and government resources from the risk area. All actions must be 

completed before the landfall arrival of gale force winds. 

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to an evacuation annex:

ÿ Identifying specific evacuation zones. These zones delineate the natural 

and manmade geographic features of the areas(s) to be evacuated. 

ÿ Designating evacuation routes for each zone. 

ÿ Estimating the number of people requiring transportation support to 

evacuate the risk area.

ÿ Specifying the clearance times needed to conduct a safe and timely

evacuation under various hurricane threats. Consider the following

complications that could impede or delay evacuation before finalizing 

the time-phased actions:

• Heavy rains and localized flooding may slow traffic movement.

• Bridge approaches may flood before evacuation can be

completed.

• Evacuees will need time to close up their homes and businesses, 

secure their boats, gather the essentials (medicines, food,

clothing, etc.) to take with them, fill their vehicle with gas, etc. 

• Special custodial facility managers will need time to mobilize 

their staff, close up the facility, and make the necessary

arrangements to move the resident population.

• Traffic entering the evacuation zone to secure homes,

businesses, boats, etc.

• Evacuees from other jurisdictions passing through the zone and 

occupying the same evacuation route(s).
Attachment D: Hurricane

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-7

• The need for special modes of transportation (ferries and air 

transport) to evacuate people from barrier islands. 
Attachment D: Hurricane

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-D-9

Mass Care The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a mass care annex:

Location of 

Mass Care 

Facilities 

These safety considerations should be addressed:

 

ÿ Ensure the facilities designated for use are located outside of the

Category 4 storm surge inundation zone.

ÿ Ensure the facilities are located outside of the 100 or 500 year

floodplain, as deemed appropriate.

ÿ Ensure the facilities are not vulnerable to flooding due to dams or 

reservoirs that overflow.

Structural 

Survivability 

Ensure each facility designated for use has been certified as capable of

withstanding the wind loads specified by the American Society of Civil

Engineers or the American National Standards Institute guidelines. If it is 

necessary to use uncertified facilities, ensure that a structural engineer

knowledgeable of the criteria contained in the guidelines cited, identifies and 

ranks the facilities that offer the best protection available.

Resource 

Management

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a resource management annex:

ÿ Provisions for purchasing, stockpiling, or otherwise obtaining essential 

hurricane response items such as ice machines, water purification

systems, polyethylene sheeting, sand bags, fill, pumps (of the right size 

and type, with necessary fuel, etc.), generators, light sets, etc.

ÿ Resource lists that identify the quantity and location of the items

mentioned above, as well as points of contact (day, night, and

weekend) for obtaining them.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-1

Attachment E

Lethal Unitary Chemical Agents and Munitions

Public Law 99-145, Section 1412, directs DOD to dispose of the lethal unitary chemical agents and 

munitions stored at eight Army installations within the continental United States. After an exhaustive 

study comparing the alternative disposal strategies, the Army issued a Final Programmatic

Environmental Impact Statement (FPEIS) for the Chemical Stockpile Disposal Program (January 1988) 

recommending on-post incineration at each site. In the February 1988 Record of Decision (ROD), the 

Army committed to establishing an emergency response program as a means of mitigating accidents 

during storage and for disposal operations.

In August 1988, the Army and FEMA signed a Memorandum of Understanding (MOU) identifying the 

specific responsibilities of the Army and FEMA, defining areas of each agency's expertise, and outlining 

where cooperation between the two agencies would result in a more efficient use of personnel and 

material resources. These obligations were integrated into a program called CSEPP. The Army has 

overall responsibility for developing on-post preparedness plans, upgrading on-post response

capabilities, conducting on-post training and has the lead for technical research, post-incident cleanup 

standards and data automation activity. FEMA is responsible for working with State and local

governments in developing off-post preparedness plans, upgrading off-post response capabilities, and 

conducting off-post training.

The chemicals weapons depots affect ten States and their emergency planners. However, chemical munitions, many 

still containing chemical agents, have been found in old dump sites, current and former military installations, old 

industrial sites, and at spurious unappreciated non-stockpile locations throughout the United States. It is 

possible that State and local planners could be contacted by the Army or FEMA to prepare short-term operations 

plans to address these situations. The information which follows should be helpful in responding to emergencies 

caused by these non-stockpile munitions.

The Hazard

Nature of

the Hazard

The chemical agents of primary concern to CSEPP are the nerve agents GA, 

GB and VX, and the vesicant (blister) agents H, HT and HD. The chemical 

and physical properties of these agents have a direct bearing on emergency 

planning and response because they determine the agents' volatility, behavior in 

fires, and persistence in the environment. All of the agents are liquids at normal 

indoor temperatures, although most sulfur mustards (H and HD) freeze at

ambient temperatures below 55 to 59o F. In the unlikely event of fires or 
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-2

explosions, on-post personnel and the off-post general public also could be 

exposed to agent combustion products as well as uncombusted agents.

The agents GA, GB, and VX are rapidly acting, lethal nerve agents and are 

toxic as liquids and vapors. The vesicant agents injure the eyes, damage the 

lungs and severely blister the skin upon exposure. The vesicants often react with 

tissue constituents, and there is significant evidence that exposure to sufficiently 

high doses may increase the risk of developing cancer. The vesicant agents are 

potent in minute quantities and can produce delayed effects as late as 24 hours 

after contact.

In pure form, the nerve agents are usually odorless, colorless (agent VX may be 

pale amber), and tasteless. GA and GB are nonpersistent nerve agents which 

primarily present a vapor hazard. The vapors from these agents would be the 

primary cause of casualties since they can be carried downwind quickly. Under 

most release and meteorological conditions GA and GB produce the greatest 

downwind hazard distance when compared to other agents in the stockpile. 

VX is not very volatile, so it presents much less vapor hazard than GA and GB; 

however, it is 100 times more toxic by the percutaneous route. In practical 

terms, a toxic dose of VX is more likely to result from skin rather than

respiratory exposure; however, all nerve agents are sufficiently volatile to pose 

an inhalation hazard. At agent concentrations of 30 mg/m3 or greater, median 

lethal inhalation doses can be attained in a few minutes.

The chemical agents are stored in three basic configurations: (1) projectiles, 

cartridges, mines, and rockets containing propellant and/or explosive

components; (2) aircraft-delivered munitions that do not contain explosive 

components; and (3) steel one-ton containers. Most of the stockpile (61%) is 

in this third form. All of the agents are at least 20 years old; some are more 

than 40 years old.

Risk Area The stockpiled agents are stored in chemical exclusion at eight U. S.

Department of Army installations within the continental United States (all

percentage figures are based on weight): Tooele Army Depot (TEAD), Utah 

(42.3% of the total stockpile); Pine Bluff Arsenal (PBA), Arkansas (12.0%); 

Umatilla Depot Activity (UMDA), Oregon (11.6%); Pueblo Depot Activity

(PUDA), Colorado (9.9%); Anniston Army Depot (ANAD), Alabama (7.1%); 

Aberdeen Proving Ground (APG), Maryland (5.0%); Newport Army
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-3

Ammunition Plant (NAAP), Indiana (3.9%); and Blue Grass Army Depot

(BGAD), Kentucky (1.6%). The remaining 6.6% of the stockpile is located on 

Johnston Island in the Pacific Ocean.

For CSEPP, the EPZ concept involves three concentric zones, reflecting the 

differing response requirements associated with a fast-breaking chemical event 

with limited time for warning and response. The innermost planning zone is the 

immediate response zone (IRZ), the middle zone is the protective action zone 

(PAZ), and the outermost zone is the precautionary zone (PZ). 

Emergency response plans must reflect the fact that a release of chemical agent 

will affect different areas in different ways and at different times. Areas near the 

point of release are likely to experience relatively high concentrations of agent 

very quickly, while areas farther away are likely to experience lower agent 

concentrations after a longer period of time. 

Prompt and effective response is most critical in the IRZ because it would be 

the first affected by an accidental release of chemical agent and would likely 

receive the heaviest agent concentrations. This zone encompasses an area

requiring less than one-hour response time when affected by an agent release 

under "typical" weather conditions. The IRZ boundary ranges from 10 to 15 km 

(6 to 9 miles) from the potential chemical event source, depending on the 

stockpile location on-post. For these reasons, emergency response plans

developed for the IRZ must provide for the most rapid and effective protective 

actions possible.

The PAZ is an area that extends beyond the IRZ to approximately 16 to 50 km 

(10 to 30 miles) from the stockpile location. The PAZ is that area where public 

protective actions may still be necessary in case of an accidental release of 

chemical agent, but where the available warning and response time is such that 

most people could evacuate. The primary emergency response is evacuation 

because it is anticipated that there will be sufficient time to permit an orderly and 

complete evacuation. However, other responses (e.g., sheltering) may be

appropriate for institutions and special populations that could not evacuate 

within the available time.

The PZ is the outermost portion of the EPZ and extends from the PAZ outer 
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-3

boundary to a distance where the risk of adverse impacts to humans is

negligible. Because of the increased warning and response time available for 

implementation of response actions in the PZ, detailed local emergency planning 

is not required, although consequence management planning may be

appropriate. 

CSEPP Planning Considerations

The CSEPP Planning Guidance Document provides information to be used 

in preparing emergency plans that cover the most important aspects of CSEPP. 

 Developed jointly by FEMA and the Army, the CSEPP Planning Guidance 

serves three principal purposes in the CSEPP:

ÿ To promote the development of a comprehensive emergency response 

capability at each chemical agent stockpile location by providing

guidance and direction to assist State, local, and Army installation

planners in formulating, coordinating, and maintaining effective

emergency response plans;

ÿ To ensure that critical planning decisions are made consistently at all 

eight chemical agent stockpile locations by establishing a single

adequate and systematic framework for emergency response planning 

related to the CSEPP; and

ÿ To provide a basis for assessing the adequacy of emergency

preparedness planning as a part of the evaluation of proposals for 

Federal assistance.

The CSEPP Planning Guidance does not contain all of the information and 

detailed technical criteria that will eventually be required for comprehensive 

emergency plans and resource programs at the eight stockpile locations.

Additional location-specific and programmatic technical guidance is available in 

a number of technical studies, either completed or ongoing. 

The CSEPP planning process involves a number of important tasks: identify the 

planning team; identify sources of technical and administrative support for the 

planning team; review existing plans to determine their status, to prevent
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-4

overlap, and to eliminate inconsistency; analyze local hazards, determine risk, 

and assess vulnerability; evaluate response capabilities and resources; upgrade 

existing plans or develop new plans and procedures; and develop an ongoing 

program for plan implementation, maintenance, training, and exercises.

Direction and

Control

The following are direction and control concerns associated with this particular 

hazard and the CSEPP.

Chemical 

Event 

Assessment

Chemical event assessment involves determining the type and nature of an

incident or accident and its potential or actual impact. Assessment is both initial 

and extended. Initial assessment (conducted by installation personnel) primarily 

involves activities such as analysis and monitoring; agent identification and

classification; dispersion modeling and dose projection; and conversion of

assessment information to emergency response considerations. Extended

monitoring activities will be determined by the nature of the accident and

release.

Emergency 

Notification

and Event 

Levels

Army and local officials must identify the type and detail of information that the 

installation must communicate to the off-post authorities to assist the latter in 

deciding upon protective actions. Such information includes, but is not limited 

to, name of communicator; verification number (if commercial telephone is used) 

or authenticator; time of notification; emergency level; time of event; brief

description of event; projected areas of impact; meteorological data; and a 

recommendation for the implementation of protective actions. Transmission of a 

hard copy of this information should follow as soon as possible. There are 

significant benefits in a standard emergency assessment and notification system 

at each Army installation. Four event levels have been established in CSEPP, 

with increasing degrees of impact: Non-Surety Emergency; Limited Area 

Emergency; Post Only Emergency; and Community Emergency.The Army

installation will notify the designated off-post point(s) of contact of the actual or 

likely occurrence, its chemical event emergency notification level, and the

recommended protective action within 5 minutes from initial detection of an

actual or likely chemical agent release at APG, ANAD, BGAD, NAAP, and 

PBA, and within 10 minutes from initial detection of an actual or likely release at 

PUDA, TEAD, and UMDA.

Emergency Because the chemical agent stockpile is under Federal jurisdiction, the National 
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-6

Operations

Plan

Contingency Plan delegates the responsibility for on-scene coordination to the 

DOD. Therefore, the Federal OSC will be an Army representative. If the 

release of a chemical agent results in the declaration of Federal emergency or 

disaster, FEMA also will be involved through its Federal Coordinating Officer 

(FCO). Each jurisdiction's command and control procedures should include 

consideration of the relationship between the OSC and the civilian emergency 

management structure.

In this context, each jurisdiction must identify the organizational structure it will 

use to respond to a chemical agent release. Key components of the structure 

include: 

ÿ The individual (and alternates) with authority to provide central

management of the community's emergency response. 

ÿ Other parties that will support the management function by providing 

advice and information. 

ÿ The response forces and other resources available to respond to the 

emergency (including those under direct control of the jurisdiction as 

well as those to be obtained from other governments or from private 

sources).

ÿ The organizational framework that will be used to coordinate the input 

of all parties to ensure an effective and comprehensive response to the 

emergency.

Emergency 

Operations

Center

An EOC developed under the CSEPP should provide a command and control 

center for potential emergencies related to the storage and disposal of the 

chemical agent stockpile as well as for other potential emergencies identified in 

the community's hazard assessment. An effective EOC consists of the

combination of physical facilities, equipment, personnel, and procedures that 

enables the jurisdiction to apply its resources efficiently and effectively to

respond to an emergency situation. Detailed guidelines for staffing, organization, 

and operation of the EOC are presented in the CSEPP Planning Guidance.
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-7

Emergency 

Worker

Operations

CSEPP takes a two-pronged approach to advancing the safety of civilian

emergency response personnel. First, no civilian workers will be intentionally 

placed in positions where they will encounter chemical agent during the

performance of their duties. Second, workers who may incidentally encounter 

chemical agent while performing their duties will be provided with appropriate 

protective clothing, equipment, and training. 

Under these guidelines, civilian responders will not enter any area where

chemical agent is known or suspected to be present while the release of agent is 

ongoing. While the release is in progress, civilian emergency workers may

perform duties (such as traffic and access control and emergency medical

services) outside the known/suspected hazard area. After the release has

stopped and chemical agent monitoring has confirmed that agent concentrations 

are within the range for which the protective clothing and equipment provide 

protection, civilian responders may enter the hazard area to perform necessary 

duties such as search and rescue and accompanying off-site Army monitoring 

personnel. All personnel whose duties during or after the release may bring them 

into contact with chemical agent will be required to use protective clothing and 

equipment specified in these guidelines.

Automation Automated systems can provide important assistance in performing many of the 

planning and response functions in CSEPP. The quickness with which a

chemical agent release could affect on-post and off-post populations argues 

strongly in favor of using automated tools to help perform complex analyses 

during planning and to manage the deployment of personnel and resources 

during response. State and local jurisdictions are strongly encouraged to make 

maximum use of automation tools being developed for CSEPP.

Communications Reliable communication systems ensure the notification and subsequent

information sharing can occur without delay. In CSEPP, at least two

independent methods of simultaneous communications must be available to 

protect against the possibility of equipment failure. A communications network, 

consisting of redundant telephone and radio systems, should be designed and 

installed to link the Army installation EOC and notification point with the EOCs 

and notification points of all IRZ counties and the State(s). Regardless of

whether the telephone or radio system is designated the primary method of 

communication, the other system must be provided to serve as a backup.
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-8

Warning The objectives of the public alert and notification system (ANS) are: 

ÿ To alert essentially every person within the IRZ of an emergency that 

has the potential of causing harm to those persons. 

ÿ To notify essentially every affected person within the IRZ of appropriate 

protective actions. 

The IRZ warning system must provide both an alerting signal and instructional 

message within 8 minutes from the time a decision has been made that the public 

is in danger. To achieve rapid notification, CSEPP endorses the concept of a 

dual indoor-outdoor warning system.

Outdoor 

Systems

Only omnidirectional electronic sirens with voice message capability are

acceptable as the primary outdoor alerting and notification devices for CSEPP. 

The network of siren/voice units is configured so that the alert signals and 

notification messages received in each area of the IRZ are of sufficient volume 

to be heard distinctly above ambient noise levels in the area. Community

characteristic descriptions, with their associated sound pressure level

requirements, are identified in the CSEPP Planning Guidance.

Indoor 

Systems

An acceptable indoor alert and notification device must be reliable and not be 

easily disabled. CSEPP supports several options: tone alert receivers, NOAA 

Specific Area Message Encoder (SAME) receivers, and EAS-capable 

receivers. Two supporting technologies to augment the receivers include

simultaneous telephone activations and interruption of cable television

programming for special announcements.

PAZ Alert and notification for the population in the PAZ is provided by a system 

designed for specific applications such as population centers and institutions, 

coupled with electronic media, EAS broadcasts, and route alerting. Public alert 

and notification system requirements within the PAZ should be viewed as 

transitioning between the exacting requirements for the IRZ to basically no 

requirements for the PZ.

Emergency 

Public

Information

CSEPP encourages an aggressive public education and information campaign as 

an essential ingredient of an effective emergency preparedness program. The 

pre-emergency public education program raises public awareness of the

hazards associated with the chemical agent stockpile and advises citizens of 
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-9

actions they can take, both before and during an emergency, to reduce risks to 

themselves and their property. Public education also informs individuals of the 

progress of Chemical Stockpile and Chemical Demilitarization activities as they 

relate to emergency preparedness. The emergency public information program 

identifies the information that will need to be communicated to the public in the 

event of a chemical agent release and a strategy for disseminating this

information rapidly.

CSEPP endorses the use of a single JIC as the most efficient method for 

gathering, coordinating and disseminating emergency information. Each

jurisdiction will develop agreements and procedures, in cooperation with all

affected local jurisdictions, State emergency management officials, and the

Army installation, that will be followed to ensure the coordinated release of 

information during an emergency. A related task for JIC personnel is the 

control of rumors.

Evacuation 

and In-Place 

Sheltering

The basic protective action choices are evacuation and four types of shelter-inplace including normal shelter-in-place, and sheltering improved by expedient 

measures, permanent enhancements, or pressurization.

Protective 

Action 

DecisionMaking

The protective action decision process consists of these steps:

ÿ Identifying the situations under which evacuation would not be

appropriate.

ÿ Determining what action provides the best protection when evacuation 

is inappropriate. 

ÿ Evaluating the situation at the time of an emergency to determine

whether evacuation or the alternative action should be implemented.

To ensure quick and appropriate emergency response, the first two steps are 

determined during emergency planning along with a process designed for

accomplishing the third step.

Protective 

Action

Decision Table

Emergency planners analyze the interaction of accident categories, as defined by 

the EPG (Emergency Planning Guide), and population characteristics to identify 

the protective actions that would be appropriate for different segments of the 

population under different accident categories. The results of this analysis are 
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-9

classified into a set of protective action strategies. Each strategy lists the 

protective action recommended for the population of each area and for each 

special population and institution under a given set of release and meteorological 

conditions. Each protective action strategy is concisely summarized in table 

form.

Evacuation 

Planning

Requirements

CSEPP requires planners to identify the optimum evacuation strategy for each 

area of the EPZ and all special populations (including any on-post personnel) 

for which evacuation has been identified as a possible protective action by using 

a quantitative evacuation time study. This includes an analysis of: 

ÿ The number of people and vehicles to be evacuated compared with

capacities of the roadways that can be used for the evacuation. 

ÿ The number and location of people without access to automobiles

compared with the supply of mass transportation vehicles that can be 

made available. 

ÿ The number and location of persons with special evacuation needs (e.g., 

the disabled) compared with the availability of personnel and vehicles 

with the capability to meet those needs.

In-Place 

Sheltering 

Planning

Requirements

Communities are required to develop a detailed sheltering-in-place plan for 

each of the four sheltering strategies. The plan will identify all structures to be 

used as shelters and will describe the program the jurisdiction will pursue to 

implement the given strategy in these structures. The plan will determine the 

resources necessary to implement the protection strategy in all affected

structures and present a checklist of actions that inspectors will consider for 

reducing infiltration in each structure.

The community will develop the capabilities to, assign responsibilities for, and 

ensure the availability of resources to: 

ÿ Notify people in appropriate areas to implement expedient shelter-inplace. 
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-10

ÿ Determine (in consultation with the Army installation) when the shelters 

should be abandoned. 

ÿ Advise people in selected areas to abandon their shelters without risking 

the inappropriate abandonment of shelters in other areas. 

ÿ Ensure prompt evacuation of all people who have been advised to leave 

their shelters.

Access 

Control

Access control points (ACP) will be pre-designated to allow the immediate 

dispatch of personnel and commitment of resources. Access control for a 

chemical event affecting off-post areas also will be necessary if the Army

creates a National Defense Area (NDA) off the installation. Off-post law 

enforcement officials may be needed to assist on-post security personnel in this 

event. The creation of an NDA permits the Army to use military forces to 

effectively control non-Federal lands or areas when necessary for reasons of 

national security.
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-11

Evacuee 

Support

The two primary components of an evacuee support system in CSEPP are 

reception and mass care. Reception is the process of receiving and registering 

evacuees, determining their needs (i.e., medical, housing, family reunification, 

etc.) and assigning them to appropriate resources. Mass care includes providing 

shelter, food, family reunification, limited medical care, and social services for 

evacuees. Reception and mass care facilities may be collocated when a small 

number of evacuees are involved. Separate reception and mass-care facilities 

are appropriate in a larger-scale evacuation.

Health and 

Medical

Health and medical concerns associated with the hazard and CSEPP include the 

following:

Decontamination Decontamination is an integral part of the treatment of people contaminated with 

chemical agent. This must be done quickly following exposure. Regardless of 

the type of chemical agent involved, personal decontamination can be

performed by flushing undiluted household bleach on all contaminated areas 

(except the face) and rinsing off with lukewarm, soapy water. This can be done 

by the individual who is contaminated, another person or by a decontamination 

team. CSEPP stresses the importance of self- and buddy-decontamination 

because of the critical time factors in performing this task.

CDC Medical

Guidelines

The CDC of the U.S. Department of Health and Human Services have

prepared recommendations for medical preparedness for CSEPP civilian

communities and have published these recommendations in the Federal Register 

(60 FR 33308, June 27, 1995).

ÿ
Attachment E: Lethal Unitary Chemical Agents and Munitions

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-E-11

Resource

Management

A chemical agent event is an unusual emergency requiring certain special

response and resource allocations not normally associated with more common 

emergencies such as floods, windstorms, or some hazardous materials

accidents. For this reason, planning for resource coordination and allocation 

becomes especially critical and should be coordinated with respect to planning 

zones and their related protective actions.

Critical to implementing the resource management components of the EOP in 

CSEPP are the automation systems. The objectives of the CSEPP automation 

system are to:

ÿ Store, manage, and access databases to support planning efforts. 

ÿ Interface databases with analytical planning tools and models. 

ÿ Provide automation support for daily, weekly, monthly, and yearly

planning tasks (e.g., reporting, scenario development, training, exercise 

planning).

ÿ Organize emergency plan concepts and standard operating procedures. 

ÿ Provide rapid access to information and pre-authorized implementation 

procedures to support command and control and protective action

decisions. 

ÿ Facilitate effective communication and alert/notification. 

ÿ Track and log events. 

ÿ Provide a means of effectively managing emergency response

resources.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1

Attachment F

Radiological Hazards

Radiological materials have many uses and serve a very important purpose in our country. Some of their 

most common uses include:

ÿ Use by doctors to detect and treat serious diseases.

ÿ Use by educational institutions and companies for research.

ÿ Use by the military to power large ships and submarines. 

ÿ Use by companies in the manufacture of products.

ÿ Use as a critical base material to help produce the commercial electrical power that is generated 

by a nuclear power plant. 

ÿ Use as one of the critical components in nuclear weapons, which are relied upon to help deter 

the threat of war.

Under extreme circumstances an accident or intentional explosion involving radiological materials can 

cause very serious problems. Consequences may include death, severe health risks to the public, 

damage to the environment, and extraordinary loss of, or damage to, property.

This attachment focuses on the unique and regulatory planning requirements associated with the two 

radiological hazard threats that pose the most significant risks to a community:

ÿ An accident at a nuclear power plant, and 

ÿ Nuclear conflict with one or more nations that may be hostile to the United States.

The description of the hazard and both radiological and direct weapons (blast, fire) effects in Tab 2 to 

this attachment apply also to the threat of nuclear terrorism. That is, the same effects and consequences 

would be associated with the "intentional" detonation of a nuclear device or weapon by a terrorist group 

seeking to maximize the blast, fire, and radiological effects. 

Planning for response to transportation accidents that involve the accidental spread or release of
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1

radiological waste materials is addressed in the Attachment C, Hazardous Materials. See also FEMAREP-5, Guidance for Developing State, Tribal, and Local Response Planning and Preparedness 

for Transportation Accidents.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-1

Tab 1 to Attachment F

Nuclear Power Plant Accident

Given the regulatory considerations associated with planning for response to a nuclear power plant 

accident, it is essential that NUREG-0654/FEMA-REP-1, Rev. 1, its supplements, and FEMA

Guidance Memoranda be used as the primary source documents for addressing the planning needs 

associated with this hazard. The information in this attachment complements the planning guidance cited 

above and is intended to help facilitate the identification of the necessary planning considerations that 

should be addressed if the jurisdiction chooses to include this hazard in its all-hazard EOP.

The Hazard

Nature of the 

Hazard

Radioactive materials are produced in the operation of nuclear reactors. The 

accidental release of these materials into the atmosphere can harm people and 

damage the environment.

Risk Area The risk area associated with accidents at a fixed commercial nuclear power 

reactor is divided into two specific geographic areas called EPZs. EPZs define 

the areas for which planning is needed to ensure prompt and effective actions 

are taken to protect the health and safety of the public if an accident occurs. 

Although in theory an EPZ is a circle centered on the power plant, the size and 

actual shape of each EPZ will be determined by the characteristics of a 

particular site (e.g., topography, identifiable landmarks, etc.). 

The plume exposure pathway (10-mile EPZ) includes everything within

approximately a 10-mile radius of the power plant. Human health and safety 

risks associated with it include: whole body injury from exposure to gamma 

radiation; and thyroid, lung, and possibly other organ injury from inhalation of 

radioactive materials.

The ingestion exposure pathway (50-mile EPZ) includes everything within

approximately a 50-mile radius of the power plant. Human health and safety 

risks associated with it include whole body and thyroid injury from ingestion of 

radiologically contaminated water and food.

Environmental concerns associated with both EPZs include contamination of:
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-1

ÿ People.

ÿ The water supply.

ÿ The crops and feed that people, domesticated animals, and wildlife 

consume.

ÿ The livestock and milk or milk products that people consume.

ÿ The areas people occupy (i.e. where they work, live, play, etc.). 

Nuclear Power Plant Accident Unique Planning Considerations

This section contains a listing of the functional annexes that typically would 

require the preparation of a hazard-specific appendix for nuclear power plant 

accidents. It also identifies many of the unique and regulatory planning

considerations that should be examined by the planning team and addressed, as 

appropriate, when preparing nuclear power plant accident hazard-specific 

appendices.

Direction and 

Control

For this hazard, four emergency classification levels (ECL) have been

established. These ECLs describe the specific emergency actions that must be 

accomplished by the licensee and off-site emergency response organizations. As 

the emergency situation escalates from a small on-site problem to an emergency 

with off-site implications, each of the emergency classification levels provides 

for a gradual expansion of response actions as the situation warrants. The four 

levels are: 1) Notification of Unusual Event, 2) Alert, 3) Site Area Emergency, 

and 4) General Emergency, this last being the most severe. 

Jurisdictions located in the 10- and 50-mile EPZs should include in their EOPs 

the appropriate tasking for response organizations to accomplish the response 

actions required by each of the emergency classification and action levels. When 

more than one jurisdiction is located in the same EPZ it is necessary for the 

jurisdictions to work together to sort out the response tasking each jurisdiction 

will perform.
Tab 1 to Attachment F: Nuclear Power Plant Accident

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-3

The State is responsible for specifying the protective measures for the public 

and response personnel for both the plume exposure and ingestion pathway 

EPZs.

Provisions should be made, as appropriate, to address the following planning 

considerations in one or more appendices to a direction and control annex:

ÿ Describing the specific responsibilities assigned to the jurisdictional

response organizations located in both EPZs. Typical tasks include:

• Preparation of written agreements that specify the concept of 

operations and specify the response roles of Federal agencies 

and of State, local, and private sector response organizations 

located in the EPZ.

• Provisions for sending a member from the emergency response 

organization to the licensee's near-site Emergency Operations 

Facility to serve as a liaison officer, if needed.

• Requirement to:

− Identify radiological laboratories that can be used to 

provide radiological monitoring and analyses services. 

− Identify nuclear and other facilities, organizations, and 

individuals that can provide resources or skills that can 

be relied upon to support the response effort.

− Provide the personnel and equipment to perform offsite radiological monitoring.

− Inspect, inventory, and operationally check radiological 

detection equipment and instruments at least once each 

calendar quarter and after each use.

− Make rapid assessments of the actual or potential

magnitude and locations of radiological hazards caused 

by a nuclear power plant accident.
Tab 1 to Attachment F: Nuclear Power Plant Accident

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-4

− Quantify the dose rate and the gross radioactivity

measurements for the isotopes specified in NUREG0654/FEMA REP-1, Rev.1, Table 3.

− Make arrangements with State or Federal agencies to 

locate and track the airborne radioactive plume.

ÿ Tasking applicable to jurisdictional response organizations located 

in the plume exposure pathway EPZ. Address:

• Provisions to accomplish field monitoring. 

• The means that will be used to detect and measure radioiodine 

concentrations in the air (down to 10-7 microcurie per cubic 

centimeter).

• Provisions for determining the best protective options and

measures (evacuation, sheltering, etc.) for the people in the risk 

area during emergency conditions.

• Provisions for traffic management and control of access to the 

affected area.

• Post-event actions to be taken by emergency response

personnel, as soon as environmental conditions and safety

considerations permit. These include:

− Provisions for relaxing the protective measures that

have been implemented.

− Means to be used for determining the appropriate time 

to allow evacuees and the general public to leave mass 

care facilities (if used) and return to their homes.

ÿ Tasking applicable to the jurisdictional response organizations

located in the ingestion pathway EPZ. Normally, the State
Tab 1 to Attachment F: Nuclear Power Plant Accident

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-4

emergency management organization will be primarily responsible for 

the response planning required for this EPZ. An appendix to the State 

or local EOP (as appropriate) must address the provisions that have 

been made:

• To detect contamination.

• For implementing procedures that will protect the public and 

prevent them from consuming contaminated foodstuffs.

Protective actions may include impoundment, decontamination, 

processing, weathering, and product replacement/substitution. 

• To prepare maps that can be used to record survey and

monitoring information applicable to farm crops, livestock, soil 

samples, dairies, food processing plants, water sheds, water 

supply intake and treatment plants, and reservoirs. The maps 

must include all of the activities cited above that are located in 

the 50-mile EPZ.

ÿ Requests for Federal assistance. In order to accurately quantify the 

potential long term health and environmental consequences of an

accident, sophisticated monitoring equipment and scientific analytical

techniques are needed. Such equipment and technical expertise usually 

are not maintained by State and local governments. Accordingly,

provisions for requesting Federal agency resources (those available

through the FRERP) to meet this need should be included in a tab to the 

hazard-specific appendix. 

Communications Provisions must be made to ensure the State and local EOCs have a

communications link with the nuclear facility and the facility's near-site 

Emergency Operations Facility, if manned.

Warning The nuclear facility licensee is responsible for notifying off-site local and State 

government response organizations in those jurisdictions that may be affected 

when an emergency occurs.

The following jurisdictional responsibilities for planning should be addressed in 

one or more appendices to a warning annex:
Tab 1 to Attachment F: Nuclear Power Plant Accident

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-6

Public 

Warning 

Warning of the public is a critical function related to this hazard. The public 

must be given timely instructions with regard to the specific protective actions to 

be taken. These instructions should describe the area(s) affected and address 

evacuation, sheltering in place, etc., as appropriate to the situation and time 

available. Further, the means chosen to accomplish the warning must ensure 

public health and safety.

Adjacent 

Jurisdictions, 

State(s), and 

the Federal 

Government 

Provisions should be made for notifying and coordinating with every jurisdiction 

and level of government located within the 10- and 50-mile EPZs. Also, local 

jurisdictions should contact their State EOC to confirm that they have been 

notified by the licensee. The State EOC should alert the FEMA Regional 

Office. 

Emergency 

Public 

Information

This section deals with the provisions made to prepare and disseminate

notifications, updates, and instructional messages to follow up on the initial

warning information passed to the public located within the plume exposure 

pathway. 

The following planning considerations should be examined and addressed in one 

or more appendices to an EPI annex:

ÿ The procedures and means that will be relied upon to notify and warn 

the public (including residential, custodial, and transient populations).

ÿ Instructions for the immediate protective actions to take (e.g., close 

windows and doors, stay indoors, shut off the heating and cooling

system, etc.). 

ÿ Evacuation instructions for evacuees (what to take, what to do about 

pets and livestock, when to leave, evacuation routes, etc.).

ÿ Locations of mass care facilities (also called "congregate care" facilities) 

and associated reception centers.

Evacuation The jurisdictions located in the plume exposure pathway should use the
Tab 1 to Attachment F: Nuclear Power Plant Accident

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-7

population information gained from the risk assessment as a starting point to 

develop the planning that will be relied upon to carry out an evacuation of

people at risk. The range of time between the onset of accident conditions and 

the start of a major release of radiological materials into the atmosphere may 

range from a few minutes to several hours, and may affect what protective 

action needs to be taken. Once a release has started, it may continue for 

several days. Critical to the evacuation decision are the type of radiological 

hazard that is threatening the public, conditions at the power plant, time

available to implement an evacuation, and the protective measures called for in 

the State’s plan. In all cases the protective actions taken must be consistent 

with the EPA protective action guide regarding human exposure to the passage 

of a radioactive airborne plume. 

The following planning considerations should be addressed, as appropriate, in 

one or more appendices to an evacuation annex:

ÿ Identifying specific evacuation zones. These zones delineate the natural 

and manmade geographic features and boundaries of the risk area(s) to 

be evacuated. 

ÿ Preparing maps that show the specific evacuation routes for each zone, 

identify the preselected radiological sampling and monitoring points, and 

show the location of mass (or “congregate”) care facilities that may be 

used to shelter evacuees.

ÿ Maps showing the population distribution around the nuclear facility.

ÿ Provisions for protecting the population residing in a health care or 

police custodial facility, or are otherwise confined and who cannot be 

evacuated. 

ÿ Coordinating with adjacent jurisdictions and facilities located outside of 

the boundaries of the plume exposure pathway EPZ to facilitate

evacuation.

ÿ Provisions for contacting the sight- and hearing-impaired.

Mass Care The following planning considerations should be addressed, as appropriate, in 
Tab 1 to Attachment F: Nuclear Power Plant Accident

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-8

one or more appendices to a mass care (or "congregate care," as it is also 

called in radiological emergency planning) annex:

ÿ Ensure facilities designated for use by the evacuated public are located 

at least 5 miles, and preferably 10 miles beyond the boundaries of the 

plume exposure pathway EPZ.

ÿ Operate reception centers to monitor, decontaminate, and register

evacuees, and to monitor/decontaminate their vehicles and possessions.

ÿ Ensure a sufficient number of facilities are available to meet the

anticipated demand for shelter. 

ÿ If facilities are to be located outside of the jurisdiction's boundaries, 

coordinate with the adjacent jurisdiction(s) to arrange space for

evacuees.

ÿ Ensure those responsible for monitoring and decontamination have the 

necessary equipment and are familiar with procedures for accomplishing 

these tasks.

ÿ When and as appropriate, identify sites for provision of mass care 

services to include:

• Distribution of food, water, ice, clothing, etc.

• First aid/medical treatment, if needed.

• Temporary housing, if needed.

Health and 

Medical

The following planning considerations should be addressed, as appropriate, in 

one or more appendices to a health and medical annex:

ÿ Provisions for determining the exposure risks and dispersal of

radiological contamination.
Tab 1 to Attachment F: Nuclear Power Plant Accident

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-8

ÿ Identification of medical facilities capable of receiving injured people 

who are contaminated.

ÿ Provisions to estimate the amount of exposure the population in the risk 

area has received.

ÿ Provisions/procedures for determining when it would be appropriate to 

obtain (from the State Health Department) and administer 

radioprotective drugs to emergency workers and individuals (e.g.

institutionalized people) who were not able to get out of the plume 

exposure pathway risk area, as well as the general population. These 

procedures must address the conditions under which these drugs would 

be administered and identify who will be responsible for making the 

decision for the use of radioprotective drugs.

ÿ Provisions for emergency personnel:

• To determine, record, and maintain the daily and accumulated 

dose they receive.

• To receive self-reading dosimeters and permanent record

devices.

ÿ Guidelines for authorizing workers to incur radiation exposure in excess 

of limits established by the EPA.

ÿ Provisions to radiologically decontaminate workers, equipment, and

supplies.

ÿ Provisions for disposal of contaminated items (clothing, medical

supplies, and other waste items).

ÿ Provisions for the medical treatment and ongoing medical evaluation of 

victims and workers that have been exposed to radiological hazards.

Resource 

Management

The following planning considerations should be addressed, as appropriate, in 

one or more appendices to a resource management annex:
Tab 1 to Attachment F: Nuclear Power Plant Accident

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-1-9

ÿ Ensure radiological survey instruments and direct-reading dosimeters 

that can be used to detect and measure gamma radiation are available 

and that members of the mass care facility management team can

operate them.

ÿ Prepare resource lists that identify the type, quantity, and location of 

radiological equipment by category (protective equipment, monitoring 

equipment, and decontamination supplies) maintained by the

jurisdiction.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-2-1

Tab 2 to Attachment F

Nuclear Conflict

The Hazard

Nature of the 

Hazard

The possibility of a nuclear conflict involving the United States is extremely

remote. Our nation's relationships with the foreign governments that possess 

nuclear weapons remain fluid. The scope of the nuclear conflict threat can vary 

from a single accidental launch or detonation by terrorists to a large scale strike 

against the United States.

Nuclear radiation is the major effect that is unique to nuclear weapons. The 

other effects differ from conventional weapons only in degree. A brief

description of the weapons effects that are of concern to the planner follows.

Nuclear 

Radiation 

Effects 

About half of the energy produced in the detonation of a nuclear weapon results 

from nuclear fission, a process in which radioactive substances are produced. 

When detonations occur on or near the earth's surface, the debris produced by 

the explosion becomes radioactive. Much of this debris is carried high into the 

atmosphere by the rising fireball. After the debris cools, it subsequently falls 

back to earth in the form of particles commonly called "fallout." The radiation 

emitted from these particles is called gamma radiation. The health

consequences of exposure to gamma radiation include:

ÿ Radiation sickness. The immediate consequence of human exposure 

to gamma radiation is called radiation sickness. The effects may occur 

within hours or days following exposure. Depending on the amount and 

duration of exposure, health problems range from nausea, fatigue,

vomiting, diarrhea, loss of hair, hemorrhages, infections, to death.

ÿ Somatic effects. Radiation injuries that may occur months to years 

after exposure are categorized as somatic effects. They include sterility 

or reduced fertility, leukemia, and other forms of cancer.

Direct 

Weapons 

The energy released by a nuclear detonation alters the environment in several 

ways. In the immediate area of the detonation, the main effects are due to the 
Tab 2 to Attachment F: Nuclear Conflict

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-2-2

Effects blast wave, thermal pulse, and electromagnetic pulse.

ÿ Blast wave. The force of wind caused by the blast wave destroys or 

damages structures and other objects. It propels and spreads the 

debris that is created by the explosion. Deaths and injuries result from 

people being thrown about or struck by the things that were turned into 

projectiles or missiles by the force of the wind associated with the 

explosion.

ÿ Thermal pulse (heat flash). The thermal pulse ignites exposed

combustible materials, causing many fires. People in the open may be 

severely burned by the heat from the detonation. 

ÿ Electromagnetic Pulse. When the radiation energy generated by a 

high altitude (60 miles and above) nuclear detonation interacts with the 

earth's atmosphere it produces low frequency electromagnetic waves. 

These waves are referred to as the EMP. When EMP interacts with 

the electric and electronic equipment components of radio and television 

systems, the resulting "energy surge" can cause severe damage. EMP is 

not a threat to most people. Only those who rely on an electrically 

driven life support system (e.g., pacemaker) are at risk. 

Risk Area The end of the cold war and collapse of the military alliance between the Soviet 

Union and its allies have significantly diminished the possibility of a massive 

coordinated attack on the United States. Control of a significant portion of the 

former Soviet Union's nuclear arsenal is in the hands of several independent 

nations. These nations now chart their own foreign policy and are not obligated 

to support any military action in which the new "Russia" may become involved. 

There are now upwards of twenty nations that may possess the capability to use 

nuclear weapons. However, it is unlikely that any one of them possesses or 

controls a large enough stockpile of weapons to carry out the kind of massive 

attack on the United States that was previously envisioned. 

Under the current international climate, it is unlikely that an organized attack on 

the United States would occur. However, if an attack did occur, areas

potentially at risk might include:
Tab 2 to Attachment F: Nuclear Conflict

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-2-3

ÿ Military installations that directly support our nation's nuclear retaliatory 

capabilities. Such installations may include intercontinental ballistic

missile launch facilities, bases that house fixed wing bombers, and those 

that are involved in command and control of offensive nuclear weapons. 

ÿ Large, densely populated metropolitan areas that play a significant role 

in support of the nation's governmental or financial management

activities.

Nuclear Conflict Unique Planning Considerations

This section contains a listing of the functional annexes that typically would 

require the preparation of a nuclear conflict hazard-specific appendix. It also 

identifies many of the unique planning considerations that should be examined by 

the planning team and addressed, as appropriate, when preparing nuclear

conflict hazard-specific appendices.

Direction and 

Control

For this hazard it is vital for emergency response personnel to be able to detect 

and quantify the location and amount of gamma radiation present in the

jurisdiction. 

Provisions should be made, as appropriate, to address the following planning 

considerations in one or more appendices to a direction and control annex:

ÿ Coordinating, when appropriate (during an international crisis, U.S.

military intervention overseas, etc.) with the next level of government to 

obtain essential information concerning:

• Intelligence estimate of the intent of adversary nations that

possess weapons of mass destruction.

• Appropriate increased readiness actions to take and the timing 

for their implementation. 

ÿ Ensuring that personnel with expertise in dealing with hazards associated 

with the nuclear conflict threat are assigned to work in the EOC. 
Tab 2 to Attachment F: Nuclear Conflict

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-2-4

Typical tasks may include:

• Advising decision makers on the scope of the radiological

hazards.

• Determining when it would be appropriate to distribute

radiological instruments to emergency response organizations 

and mass care facility management teams.

• Disseminating essential radiological information to emergency

response personnel and shelter management teams.

• Analyzing radiological information reported by emergency

response teams and facility managers. Then:

− Determine the relevant exposure data of shelter

occupants and personnel performing emergency

response duties and ensure that this information is

tracked and recorded.

− Implement a procedure that would limit the exposure of 

personnel performing emergency response duties.

− Ensure facilities and areas that must be inhabited or 

used by humans are monitored and decontaminated, if 

appropriate.

− Ensure facilities and areas that are unsafe for human use 

are identified. 

− Ensure people remain sheltered (in their mass care

facility or risk area shelter) until the gamma radiation 

hazard has passed.

− Determine the appropriate time to allow evacuees and 

the general public to leave mass care facilities

.
Tab 2 to Attachment F: Nuclear Conflict

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-2-5

Warning Warning of the public is a critical function related to this hazard. Lead time is 

necessary to make the arrangements needed to ensure the people that are 

located in risk areas evacuate or seek shelter. Approximately 48 or more hours 

may be needed to carry out the necessary actions to ensure the public is 

protected from this hazard. The following planning considerations should be 

addressed, if appropriate, in one or more appendices to a warning annex:

ÿ Coordination with the next level of government, when appropriate,

(during international crisis, U. S. military intervention overseas, etc.) to 

obtain information concerning the appropriate time to disseminate

warning.

ÿ Use of a jurisdiction-wide warning system to disseminate timely warning 

to the public and members of the emergency response organization.

Emergency 

Public 

Information

A nuclear conflict appendix to an EPI annex should address survival tips for 

people living in jurisdictions vulnerable to nuclear effects who choose to shelter 

themselves in their homes.

Evacuation Evacuation is the primary protective action option that should be used to protect 

people from this hazard. The information gained from the risk assessment 

should be used to develop the planning instructions that will be relied upon to 

carry out an evacuation of those people at risk to direct weapons effects. 

These planning instructions detail the time-phased actions to be taken to

evacuate people and relocate, if practical, essential services, special custodial 

facilities, and government resources from the risk area. All actions must be 

completed before a nuclear detonation occurs. For this reason, a nuclear 

conflict appendix to the evacuation annex should address the clearance times 

needed to conduct a safe and timely evacuation of the population at risk. 

Since a jurisdiction cannot guarantee that it will receive warning in time to 

evacuate fully, provisions should be made for relocation within the risk area

of the public at risk in situations where the warning comes too late to permit 

evacuation. The following needs should be addressed:

ÿ Facilities. Provisions should be made to:
Tab 2 to Attachment F: Nuclear Conflict

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-2-6

• Identify the facilities in the risk area that:

− Offer the best protection available.

− Can be used to house large numbers of people.

• Use tabs to reflect key information (protection factor, capacity, 

cooking, sleeping, water, medical, recreational capabilities,

telepone numbers, point of contact for access, etc.) associated 

with each facility. 

ÿ Special Equipment. Provisions should be made to:

• Move radiac meters and dosimeters (that can be used to detect 

and measure gamma radiation) to those facilities selected for 

use as shelters within the risk area.

• Ensure members of the facility management team can operate 

available radiological detection and decontamination equipment. 

• Ensure that mass care facility management team members are 

assigned to work at any shelter facility to be opened within the 

risk area, if their facility is not scheduled to be opened. 

ÿ Decontamination. Ensure members of each facility management team 

are familiar with procedures for decontaminating people and the shelter.

Mass Care The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a mass care annex:

ÿ Ensure facilities designated for use are located outside of the area 

vulnerable to direct weapons effects.

ÿ Tabs should be used to reflect key information (protection factor,

capacity, cooking, sleeping, water, medical, recreational capabilities, 

telepone numbers, point of contact for access, etc.) associated with 
Tab 2 to Attachment F: Nuclear Conflict

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-2-7

each facility. 

ÿ If facilities are located outside of the jurisdiction's boundaries,

coordinate with the adjacent jurisdiction(s) to arrange space for

evacuees.

ÿ Identify mass care facilities suitable for housing custodial care groups.

ÿ Ensure the facilities designated for use provide protection from gamma 

radiation to shelter occupants.

ÿ Ensure provisions have been made regarding necessary special

equipment:

• Move radiac meters and dosimeters (that can be used to detect 

and measure gamma radiation) to those mass care facilities that 

have been selected for opening.

• Ensure members of the facility management team can operate 

available radiological detection and decontamination equipment. 

ÿ Ensure members of each mass care facility management team are

familiar with procedures for decontaminating people and the facility.

Health and 

Medical

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a health and medical annex:

ÿ Provisions for determining the levels of radiation exposure of exposed 

people.

ÿ Designation of facilities that:

• Have the capability to decontaminate and medically treat people 

exposed to radiation.
Tab 2 to Attachment F: Nuclear Conflict

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-F-2-7

• Dispose of contaminated items (clothing, medical supplies, and 

other waste items).

ÿ Provisions for continued medical surveillance of personnel performing 

essential operational tasks.

Resource 

Management

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a resource management annex:

ÿ Provisions for purchasing, stockpiling, or otherwise obtaining essential 

gamma radiation detection devices for use in shelters within the risk area 

 and in mass care facilities.

ÿ Provisions for purchasing, stockpiling, or otherwise obtaining the

essential stocks (food, water, medical, etc.) needed to support an

extended stay (3-14 days) in shelters within the risk area or in mass 

care facilities.
SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page 6-G-1

Attachment G

Terrorism

TO BE DEVELOPED
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-H-1

Attachment H

Tornado

The Hazard

Nature of the 

Hazard

A tornado consists of violent whirling wind accompanied by a funnel-shaped 

cloud. Usually, tornadoes are associated with severe weather conditions such 

as thunderstorms and hurricanes. Tornadoes are very destructive. The

average width of a tornado is 300 to 500 yards. Their path may extend up to 

fifty miles, and the funnel cloud moves at speeds between 10 and 50 mph. The 

wind speed within the funnel cloud has been estimated at between 100 and 500 

mph. Roughly two percent of all tornadoes are "violent" tornadoes, with wind 

speeds of 300 mph or more, an average path width of 425 yards, and an

average path length of 26 miles. Tornado season runs from March to August in 

the United States, with peak activity from April to June; however, tornadoes 

can occur year-round.

Risk Area Tornadoes have occurred in every State. Historically, they have been most 

frequent in Texas, Oklahoma, Florida, Kansas, Nebraska, Iowa, South

Dakota, Illinois, Missouri, Mississippi, Louisiana, Colorado, Wisconsin,

Arkansas, Georgia, North Dakota, Minnesota, Indiana, and Michigan. More 

than 50 percent of the land mass in the United States is within the area of 

significant tornado risk.

Tornado Unique Planning Considerations

This section contains a listing of the functional annexes that typically would 

require the preparation of a hazard-specific appendix for tornadoes. It also 

identifies many of the unique planning considerations that should be examined by 

the planning team and used, as appropriate, when preparing tornado-specific 

appendices.

Direction and 

Control

For this hazard it is essential for emergency response personnel to take

immediate action, as soon as conditions permit, to gather initial damage

assessment information in the area that was impacted by the tornado. This 

information is needed to determine the severity and extent of injuries and
Attachment H: Tornado

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-H-2

damages. 

High-risk jurisdictions may want to use a network of trained spotters. This 

spotting network would be relied on to rapidly communicate information that 

can be helpful to the appropriate authorities responsible for making the decision 

for when to upgrade from a Tornado Watch to Tornado Warning. The

network can also assist in tracking the tornado's path. 

This data gathering effort should provide much of the information decision

makers will need to implement and prioritize response actions for: search and 

rescue activities; access control and re-entry to the impacted area; debris 

clearance; restoration of utilities and lifeline repairs; and the inspection,

condemnation, and/or demolition of buildings and other structures.

Provisions should be made, as appropriate, to address the following planning 

considerations in one or more appendices to a direction and control annex:

Damage 

Assessment

Conduct of immediate ground and air surveys to determine the extent of

damage, casualties, and the status of key facilities.

Search and 

Rescue

Use of damage assessment information to identify the facilities and areas where 

search and rescue operations may need to be conducted and to establish a 

priority for conduct of these operations. Planning should focus on the actions 

that need to be carried out in order to remove trapped and injured persons from 

homes, buildings collapses, and other structural collapses, administer first aid, 

and assist in transporting the seriously injured to medical facilities.

Access 

Control and 

Re-entry

Control of access to the area severely affected by the tornado until the area is 

safe. Only those directly involved in emergency response operations should be 

allowed to enter.

Debris 

Clearance

Actions taken to identify, remove, and dispose of rubble, wreckage, and other 

material which block or hamper the performance of emergency response

functions. Activities may include:

ÿ Demolition and other actions to clear obstructed roads.
Attachment H: Tornado

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-H-3

ÿ Repairing or temporarily reinforcing roads and bridges.

ÿ Construction of emergency detours and access roads.

Inspection, 

Condemnation

, and 

Demolition

Actions taken to inspect buildings and other structures to determine whether it is 

safe to inhabit or use them after a tornado has occurred. Activities may include:

Inspection of buildings and structures which are critical to emergency

operations.

ÿ Inspection of buildings and structures that may threaten public safety.

ÿ Inspection of less critically damaged structures. Designate those that 

may be occupied and identify/mark those that are to be condemned.

ÿ Arrangements for the demolition of condemned structures.

Warning Warning of the public is critical for this hazard. The NWS will place areas 

under a Tornado Watch when conditions are particularly favorable for

tornadoes and severe storms. NWS will issue a Tornado Warning when a 

tornado has been visually spotted or picked up on radar. Television, radio, and 

NOAA tone alert radio are sources of information for the public.

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to a warning annex:

ÿ Provision for the jurisdiction's central warning point to obtain timely 

Tornado Watch and Warning information (direct link to area weather 

stations, continuously monitor NWS and other sources, etc.). 

ÿ Provisions for notifying institutions and facilities (e.g., schools, hospitals, 

nursing homes, jails, prisons, shopping malls, major factories, and

sporting events) that a Watch or Warning has been issued.
Attachment H: Tornado

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page 6-H-4

ÿ Provisions for activating the jurisdiction-wide (if available) warning

system to disseminate timely warning to the public and emergency

response organization members that a tornado has touched down in the 

jurisdiction. 

Emergency 

Public 

Information

The flow of accurate and timely emergency information is critical to the

protection of lives and property. This section deals with the provisions made to 

prepare and disseminate notifications, updates, and instructional messages to 

follow up on the initial warning. 

The following planning considerations should be addressed, if appropriate, in 

one or more appendices to an EPI annex:

ÿ Survival tips for people on what to do during and immediately after a 

tornado. During a Tornado Watch information should be disseminated 

to the public on the appropriate protective actions to take if a Tornado 

Warning is issued (e.g., encourage people without underground shelter 

to seek out an interior room or hallway on the lowest floor and there to 

seek cover under something sturdy, like a table, etc.).

ÿ Warnings and advice on the continuing threat of storms, unsafe areas, 

buildings and structures, and other hazards.

Evacuation Evacuation is not a practical option for this hazard since the point of touchdown 

and the track of a tornado are unpredictable. The typical protective action 

option for a tornado is shelter-in-place. 

Mass Care A tornado-specific appendix is probably unnecessary, since the mass care 

functional annex should adequately address the immediate actions to be taken, 

as soon as conditions permit, in the area that was severely impacted by a 

tornado. Damaged houses may not be habitable; residents should be dissuaded 

from entering unsafe buildings and persuaded instead to seek temporary shelter.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 7-1

Chapter 7

Linking Federal and State Emergency Response Operations 

Introduction

The Robert T. Stafford Disaster Relief and Emergency Assistance Act, Public 

Law 93-288, as amended, authorizes the Federal Government to respond to 

disasters and emergencies in order to provide State and local governments 

assistance to save lives and protect public health, safety, and property. The 

FRP was developed to help expedite Federal support to State and local

governments dealing with the consequences of large-scale disasters (see Figure 

7-1). Generally, the FRP is implemented when the State's resources are not 

sufficient to cope with a disaster and the Governor has requested Federal

assistance. 

This chapter summarizes the response planning considerations that shape the 

content of the FRP, Regional Response Plans (RRP), and State EOPs. It also 

outlines the linkages between Federal and State emergency response operations 

for planning purposes.

Relationship - Federal (National/ Regional) Response Plans and the State 

EOP

Federal Response Plans and State EOPs describe each respective level of

government's approach to emergency response operations. Since both levels of 

government provide support there are some similar and overlapping functions in 

the plans.

Federal 

Response 

Plan

The FRP details what the Federal Government will do to provide emergency 

assistance to a State and its affected local governments impacted by a largescale disaster. It also describes an organizational structure for providing this 

assistance.

Concept of 

Operations 

The FRP may be implemented after a large-scale disaster has occurred or upon 

warning that such a disaster is likely to occur. In either case the fundamental 

assumption is that the situation has exceeded or will exceed the State and local 
Chapter 7: Linking Federal and State Emergency Response Operations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 7-2

governments' capability to respond and recover. The plan guides the activities 

of Federal agencies (and supporting organizations like the ARC) that are tasked 

to perform response and recovery actions.

Insert Figure 7-1 here
Chapter 7: Linking Federal and State Emergency Response Operations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 7-3

Functional 

Organization

The FRP uses twelve ESFs to group and describe the kinds of resources and 

types of Federal assistance that can be provided to augment State and local 

response efforts. The ESFs include: (1) Transportation, (2) Communications, 

(3) Public Works and Engineering, (4) Firefighting, (5) Information and

Planning, (6) Mass Care, (7) Resource Support, (8) Health and Medical

Services, (9) Urban Search and Rescue, (10) Hazardous Materials, (11) Food, 

and (12) Energy. A primary agency has been designated for each ESF. During 

response and recovery operations, the primary agency forms and activates a 

team that is responsible for working with the appropriate State and local

officials to identify unmet resource needs. The team also coordinates the flow 

of resources and assistance the Federal Government provides to meet these 

needs.

The FRP serves as the foundation for the development of headquarters and 

regional response plans that will be relied on to implement Federal response 

activities.

Regional 

Response 

Plans 

RRPs supplement the FRP and detail the specific regional level response and 

recovery actions and activities that may be taken by Federal departments and 

agencies to support the Federal response effort. They also provide the

necessary linkage between the State EOP and the FRP. Each RRP:

ÿ Specifies the responsibilities that are assigned to each of the tasked 

Federal departments and agencies for mobilizing and deploying

resources to assist State(s) in response/recovery efforts. 

ÿ Describes the relationship between the responding Federal

agencies/departments and their State counterparts.

ÿ Provides information to the States on the various response mechanisms, 

capabilities, and resources available to them through the Federal

Government.

ÿ Includes organizational tasking and implementing instructions for

accomplishing the actions agreed upon in the Region/State MOUs. The 

MOU is a written agreement between the Federal and State

governments. The FEMA Regional Director and the appropriate State 
Chapter 7: Linking Federal and State Emergency Response Operations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 7-4

official are the signatories. The MOU describes the working relationship 

and provisions that have been made to facilitate joint Federal/State 

operations during large-scale disasters. The following list identifies 

some of the typical MOU responsibilities that may be addressed in a 

RRP:

• Notification procedures and protocols for communicating with 

State officials (points of contact--State Governor, State

Emergency Management Agency Director, EOC managers,

etc.); means of communication (telephone, radio, teletype, email, fax, etc.); frequency of contact; and message content

(initial discussions on scope of the disaster, State's initial

assessment of the situation, identification of liaison officers and 

their estimated arrival time at the State EOC, likely staging

areas for Federal response teams, etc.).

• Provision for Federal Field Assessment Team (FAsT)

personnel to assist in conduct of a "rapid situation assessment" 

immediately after a disaster has occurred or immediately prior 

to such an event.

• The coordination responsibilities of Regional liaison officer(s) 

and the provisions established for deployment to the State

EOC.

• Provisions for deployment of emergency response team

members to the State EOC, staging locations, or directly into 

the area impacted by the disaster.

• Provisions for obtaining work space in the State EOC and other 

locations for the initial response cadre, arrangements to obtain 

work space for the Disaster Field Office (DFO) and other 

follow-on response teams, and a variety of other activities that 

require extensive coordination.

State 

Emergency 

The State emergency response mission is much broader than the Federal 

Government's. In addition to providing resources to satisfy unmet local needs, 
Chapter 7: Linking Federal and State Emergency Response Operations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 7-5

Operations 

Plan

the State EOP addresses several operational response functions. These

functions focus on the direction and control, warning, emergency public

information, and evacuation actions that must be dealt with during the initial 

phase of response operations, fall outside of the Federal response mission, and 

are not appropriate for inclusion in Federal response plans. The functional

planning approach suggested in Chapter 5 allows States to address those 

operational responsibilities. Table 7-1 shows how the functions described in 

Chapter 5, if adopted, may link with Federal ESFs in those emergencies that 

require implementation of the FRP. (Table 7-1 is at the end of this chapter, 

due to its length.) 

However, since States do have this additional responsibility to channel Federal 

assistance provided under the FRP, some States choose to "mirror" the FRP 

functions. There is no need to mirror the Federal ESFs exactly: States have 

successfully used a hybrid approach, either by giving State counterparts of

Federal ESFs those "extra" responsibilities appropriate to the State level, or by 

creating functions in addition to those used by the Federal Government in order 

to address State responsibilities and concerns.

The important thing is for the State's choice of functions to fit the State's own 

concept of operations, policies, governmental structure, and resource base. 

That is because the State EOP details what the State government will do to 

respond to all large-scale disaster and emergency situations that could harm 

people and property within the State, whether or not links to the FRP/RRP 

framework become necessary. The State EOP:

ÿ Identifies the State departments and agencies that have been designated 

to perform response and recovery activities and specifies the tasks to 

be accomplished.

ÿ Outlines the assistance that may be provided to local jurisdictions during 

disaster situations that generate emergency response and recovery

needs beyond the jurisdiction's capabilities to satisfy. 

ÿ Specifies the direction and control and communications procedures and 

systems that will be relied upon to alert, notify, recall, and dispatch

emergency response personnel; warn local jurisdictions; protect citizens 
Chapter 7: Linking Federal and State Emergency Response Operations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 7-6

and property; and request aid/support from other States and/or the 

Federal Government (including the role of the Governor’s Authorized 

Representative, or GAR).

ÿ Describes the provisions that have been made to obtain initial situation 

assessment information from the local jurisdiction(s) that have been

directly impacted by the disaster. Typically, this information provides 

an early assessment of:

• The approximate number of disaster victims that have been:

− Injured, killed, or are missing.

− Evacuated from the area impacted by the disaster.

− Housed in mass care facilities. 

• The damage done to lifeline systems such as hospitals, power 

plants, water and sanitation systems, etc.

• The damage done to transportation networks such as airports, 

major roads and bridges, rail lines, ports, etc.

• The types of assistance (food, water, medical, US&R, etc.) the 

jurisdiction will require to satisfy the immediate needs of disaster 

victims.

ÿ Includes organizational tasking and instructions for accomplishing the 

actions agreed upon in the Region/State MOU. The MOU describes 

the working relationship and provisions that have been made to facilitate 

joint Federal/State operations during large-scale disasters. The

following list identifies some of the typical responsibilities contained in 

the MOUs that may be addressed in the State EOP:

• Provisions for notifying the FEMA Regional Office about the 

occurrence of a disaster or evolving emergency situation that 

may warrant activation of the RRP. 
Chapter 7: Linking Federal and State Emergency Response Operations

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96) 

page 7-7

• Communication protocols to include means of communication, 

frequency of contact, and message content (e.g. warning

messages, situation reports, requests for assistance, etc.). 

• Provisions for requesting Federal response teams to assist the 

State.

− Requesting that a FAsT be deployed to assist the State 

in assessing the disaster situation.

− Designating individuals to participate as State

Emergency Management Agency representatives on the 

FAsT.

− Preparing a joint (FEMA/State) Preliminary Damage 

Assessment (PDA).

• Provisions for providing work space and communication

support to the Regional liaison officers and other Federal teams 

deployed to the State EOC, staging areas, or the area directly 

impacted by the disaster. 

• Provisions for designating a SCO to work directly with the 

FCO.

• Provisions for assisting the FCO in identifying candidate

locations for establishing the DFO.

ÿ Details the coordinating instructions and provisions for implementing

interstate compacts, as applicable.

ÿ Explains how planned operations will be logistically supported.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-1

Glossary of Terms 

Words, phrases, abbreviations, and acronyms relevant to emergency management should be defined. 

Many terms in emergency management have special meanings, so it is important to establish precise 

definitions. Such definitions allow the users of the EOP to share an understanding of the EOP. 

American Red 

Cross

The American Red Cross is a humanitarian organization, led by volunteers, that 

provides relief to victims of disasters and helps people prevent, prepare for, and 

respond to emergencies. It does this through services that are consistent with its 

Congressional Charter and the Principles of the International Red Cross

Movement.

Attack

 

A hostile action taken against the United States by foreign forces or terrorists, resulting in the 

destruction of or damage to military targets, injury or death to the civilian population, or damage 

or destruction to public and private property.

Checklist Written (or computerized) enumeration of actions to be taken by an individual 

or organization, meant to aid memory rather than provide detailed instruction.

Chief 

Executive 

Official

The official of the community who is charged with authority to implement and 

administer laws, ordinances, and regulations for the community. He or she may 

be a mayor, city manager, etc.

Community

 

A political entity which has the authority to adopt and enforce laws and

ordinances for the area under its jurisdiction. In most cases, the community is 

an incorporated town, city, township, village, or unincorporated area of a 

county. However, each State defines its own political subdivisions and forms of 

government.

Contaminatio

n

 

The undesirable deposition of a chemical, biological, or radiological material on 

the surface of structures, areas, objects, or people.

Dam A barrier built across a watercourse for the purpose of impounding, controlling, 

or diverting the flow of water.
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-1

Damage 

Assessment 

The process used to appraise or determine the number of injuries and deaths, 

damage to public and private property, and the status of key facilities and 

services such as hospitals and other health care facilities, fire and police stations, 

communications networks, water and sanitation systems, utilities, and

transportation networks resulting from a man-made or natural disaster.

Decontamination The reduction or removal of a chemical, biological, or radiological material from 

the surface of a structure, area, object, or person.

Disaster An occurrence of a natural catastrophe, technological accident, or humancaused event that has resulted in severe property damage, deaths, and/or

multiple injuries. As used in this Guide, a “large-scale disaster” is one that 

exceeds the response capability of the local jurisdiction and requires State, and 

potentially Federal, involvement. As used in the Stafford Act, a “major

disaster” is “any natural catastrophe [...] or, regardless of cause, any fire, flood, 

or explosion, in any part of the United States, which in the determination of the 

President causes damage of sufficient severity and magnitude to warrant major 

disaster assistance under [the] Act to supplement the efforts and available 

resources or States, local governments, and disaster relief organizations in

alleviating the damage, loss, hardship, or suffering caused thereby.”

 

Disaster Field 

Office

The office established in or near the designated area of a Presidentially declared 

major disaster to support Federal and State response and recovery operations. 

The DFO houses the FCO and ERT, and where possible, the SCO and 

support staff.

Disaster 

Recovery 

Center

Places established in the area of a Presidentially declared major disaster, as 

soon as practicable, to provide victims the opportunity to apply in person for 

assistance and/or obtain information relating to that assistance. DRCs are 

staffed by local, State, and Federal agency representatives, as well as staff from 

volunteer organizations (e.g., the ARC).

 

Dose 

(Radiation) 

A general term indicating the quantity (total or accumulated) of ionizing radiation 

or energy absorbed by a person or animal.

Dose Rate The amount of ionizing radiation which an individual would absorb per unit of time.

Dosimeter An instrument for measuring and registering total accumulated exposure to
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-2

ionizing radiation.

 

Earthquake The sudden motion or trembling of the ground produced by abrupt

displacement of rock masses, usually within the upper 10 to 20 miles of the 

earth's surface.

Electromagnetic

Pulse 

A sharp pulse of energy radiated instantaneously by a nuclear detonation which 

may affect or damage electronic components and equipment.

Emergency Any occasion or instance--such as a hurricane, tornado, storm, flood, tidal

wave, tsunami, earthquake, volcanic eruption, landslide, mudslide, snowstorm, 

fire, explosion, nuclear accident, or any other natural or man-made catastrophe-

-that warrants action to save lives and to protect property, public health, and 

safety.

Emergency 

Alert System

A digital technology (voice/text) communications system consisting of broadcast 

stations and interconnecting facilities authorized by the Federal Communication 

Commission. The system provides the President and other national, State, and 

local officials the means to broadcast emergency information to the public 

before, during, and after disasters.

Emergency 

Environmental 

Health 

Services 

Services required to correct or improve damaging environmental health effects 

on humans, including inspection for food contamination, inspection for water 

contamination, and vector control; providing for sewage and solid waste

inspection and disposal; clean-up and disposal of hazardous materials; and 

sanitation inspection for emergency shelter facilities.

Emergency 

Health 

Services 

Services required to prevent and treat the damaging health effects of an

emergency, including communicable disease control, immunization, laboratory 

services, dental and nutritional services; providing first aid for treatment of

ambulatory patients and those with minor injuries; providing public health 

information on emergency treatment, prevention, and control; and providing

administrative support including maintenance of vital records and providing for a 

conduit of emergency health funds from State and Federal governments.

Emergency 

Medical 

Services, including personnel, facilities, and equipment required to ensure

proper medical care for the sick and injured from the time of injury to the time 
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-4

Services of final disposition, including medical disposition within a hospital, temporary 

medical facility, or special care facility, release from site, or declared dead. 

Further, emergency medical services specifically include those services

immediately required to ensure proper medical care and specialized treatment 

for patients in a hospital and coordination of related hospital services.

Emergency 

Mortuary 

Services 

Services required to assure adequate death investigation, identification, and 

disposition of bodies; removal, temporary storage, and transportation of bodies 

to temporary morgue facilities; notification of next of kin; and coordination of 

mortuary services and burial of unclaimed bodies.

Emergency 

Operating 

Center

The protected site from which State and local civil government officials

coordinate, monitor, and direct emergency response activities during an

emergency.

Emergency 

Operations 

Plan

A document that: describes how people and property will be protected in

disaster and disaster threat situations; details who is responsible for carrying out 

specific actions; identifies the personnel, equipment, facilities, supplies, and 

other resources available for use in the disaster; and outlines how all actions will 

be coordinated.

Emergency 

Planning 

Zones

Areas around a facility for which planning is needed to ensure prompt and 

effective actions are taken to protect the health and safety of the public if an 

accident occurs. The REP Program and CSEPP use the EPZ concept.

ÿ In the REP Program, the two EPZs are:

• Plume Exposure Pathway (10-mile EPZ). A circular

geographic zone (with a 10-mile radius centered at the nuclear 

power plant) for which plans are developed to protect the

public against exposure to radiation emanating from a

radioactive plume caused as a result of an accident at the

nuclear power plant. 

• Ingestion Pathway (50-mile EPZ). A circular geographic 
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-4

zone (with a 50-mile radius centered at the nuclear power plant) 

for which plans are developed to protect the public from the 

ingestion of water or foods contaminated as the result of a 

nuclear power plant accident.

ÿ In CSEPP, the EPZ is divided into three concentric circular zones:

• Immediate Response Zone (IRZ). A circular zone ranging from 

10 to 15 km (6 to 9 miles) from the potential chemical event 

source, depending on the stockpile location on-post. 

Emergency response plans developed for the IRZ must provide 

for the most rapid and effective protective actions possible, 

since the IRZ will have the highest concentration of agent and 

the least amount of warning time.

• Protective Action Zone (PAZ). An area that extends beyond 

the IRZ to approximately 16 to 50 km (10 to 30 miles) from the 

stockpile location. The PAZ is that area where public protective 

actions may still be necessary in case of an accidental release of 

chemical agent, but where the available warning and response 

time is such that most people could evacuate. However, other 

responses (e.g., sheltering) may be appropriate for institutions 

and special populations that could not evacuate within the

available time.

• Precautionary Zone (PZ). The outermost portion of the EPZ 

for CSEPP, extending from the PAZ outer boundary to a

distance where the risk of adverse impacts to humans is

negligible. Because of the increased warning and response time 

available for implementation of response actions in the PZ,

detailed local emergency planning is not required, although

consequence management planning may be appropriate. 

Emergency 

Response 

Team

An interagency team, consisting of the lead representative from each Federal 

department or agency assigned primary responsibility for an ESF and key

members of the FCO’s staff, formed to assist the FCO in carrying out his/her 
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-5

coordination responsibilities. The ERT may be expanded by the FCO to 

include designated representatives of other Federal departments and agencies 

as needed. The ERT usually consists of regional-level staff.

Emergency 

Response 

Team Advance 

Element

For Federal disaster response and recovery activities under the Stafford Act, 

the portion of the ERT that is first deployed to the field to respond to a disaster 

incident. The ERT-A is the nucleus of the full ERT.

Emergency 

Response 

Team National

An ERT that has been established and rostered for deployment to catastrophic 

disasters where the resources of the FEMA Region have been, or are expected 

to be, overwhelmed. Three ERT-Ns have been established.

Emergency 

Support 

Function

In the FRP, a functional area of response activity established to facilitate the 

delivery of Federal assistance required during the immediate response phase of 

a disaster to save lives, protect property and public health, and to maintain 

public safety. ESFs represent those types of Federal assistance which the State 

will most likely need because of the impact of a catastrophic or significant 

disaster on its own resources and response capabilities, or because of the 

specialized or unique nature of the assistance required. ESF missions are 

designed to supplement State and local response efforts.

Emergency 

Support Team

An interagency group operating from FEMA headquarters. The EST oversees 

the national-level response support effort under the FRP and coordinates

activities with the ESF primary and support agencies in supporting Federal

requirements in the field.

Evacuation

 

Organized, phased, and supervised dispersal of people from dangerous or 

potentially dangerous areas.

ÿ Spontaneous Evacuation. Residents or citizens in the threatened

areas observe an emergency event or receive unofficial word of an

actual or perceived threat and without receiving instructions to do so, 

elect to evacuate the area. Their movement, means, and direction of 

travel is unorganized and unsupervised. 
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-6

ÿ Voluntary Evacuation. This is a warning to persons within a

designated area that a threat to life and property exists or is likely to 

exists in the immediate future. Individuals issued this type of waning or 

order are NOT required to evacuate, however it would be to their 

advantage to do so.

ÿ Mandatory or Directed Evacuation. This is a warning to persons 

within the designated area that an imminent threat to life and property 

exists and individuals MUST evacuate in accordance with the

instructions of local officials.

 

Evacuees All persons removed or moving from areas threatened or struck by a disaster.

Exposure 

(Radiological)

A quantitative measure of gamma or x-ray radiation at a certain place based on 

its ability to produce ionization in air.

Exposure Rate 

(Radiological)

The amount of ionizing radiation to which an individual would be exposed or 

which he or she would receive per unit of time.

Federal 

Coordinating 

Officer

The person appointed by the President to coordinate Federal assistance in a 

Presidentially declared emergency or major disaster.

Field 

Assessment 

Team

A small team of pre-identified technical experts that conduct an assessment of 

response needs (not a PDA) immediately following a disaster. The experts are 

drawn from FEMA, other agencies and organizations--such as the U.S. Public 

Health Service, U.S. Army Corps of Engineers, U.S. Environmental Protection 

Agency, and the American Red Cross--and the affected State(s). All FAsT 

operations are joint Federal/State efforts.

Flash Flood

 

Follows a situation in which rainfall is so intense and severe and runoff so rapid 

that it precludes recording and relating it to stream stages and other information 

in time to forecast a flood condition.

Flood

 

A general and temporary condition of partial or complete inundation of normally 

dry land areas from overflow of inland or tidal waters, unusual or rapid

accumulation or runoff of surface waters, or mudslides/mudflows caused by 

accumulation of water.
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-7

Governor’s 

Authorized 

Representative

The person empowered by the Governor to execute, on behalf of the State, all 

necessary documents for disaster assistance. 

Hazard 

Mitigation

Any action taken to reduce or eliminate the long-term risk to human life and 

property from hazards. The term is sometimes used in a stricter sense to mean 

cost-effective measures to reduce the potential for damage to a facility or 

facilities from a disaster event.

Hazardous 

Material

Any substance or material that when involved in an accident and released in 

sufficient quantities, poses a risk to people's health, safety, and/or property. 

These substances and materials include explosives, radioactive materials,

flammable liquids or solids, combustible liquids or solids, poisons, oxidizers, 

toxins, and corrosive materials.

High-Hazard 

Areas

Geographic locations that for planning purposes have been determined through 

historical experience and vulnerability analysis to be likely to experience the 

effects of a specific hazard (e.g., hurricane, earthquake, hazardous materials 

accident, etc.) resulting in vast property damage and loss of life.

Hurricane

 

A tropical cyclone, formed in the atmosphere over warm ocean areas, in which 

wind speeds reach 74 miles per hour or more and blow in a large spiral around 

a relatively calm center or "eye". Circulation is counter-clockwise in the 

Northern Hemisphere and clockwise in the Southern Hemisphere.

Incident 

Command 

System

A standardized organizational structure used to command, control, and

coordinate the use of resources and personnel that have responded to the scene 

of an emergency. The concepts and principles for ICS include common

terminology, modular organization, integrated communication, unified command 

structure, consolidated action plan, manageable span of control, designated 

incident facilities, and comprehensive resource management.

Joint 

Information 

Center

A central point of contact for all news media near the scene of a large-scale 

disaster. News media representatives are kept informed of activities and events 

by public information officials who represent all participating Federal, State, and 
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-8

local agencies that are collocated at the JIC.

Joint 

Information 

System

Under the FRP, connection of public affairs personnel, decision-makers, and 

news centers by electronic mail, fax, and telephone when a single FederalState-local JIC is not a viable option.

Mass Care

 

The actions that are taken to protect evacuees and other disaster victims from 

the effects of the disaster. Activities include providing temporary shelter, food, 

medical care, clothing, and other essential life support needs to those people 

that have been displaced from their homes because of a disaster or threatened 

disaster.

Nuclear 

Detonation

An explosion resulting from fission and/or fusion reactions in nuclear material, 

such as that from a nuclear weapon.

Public 

Information 

Officer

A Federal, State, or local government official responsible for preparing and 

coordinating the dissemination of emergency public information.

Preliminary 

Damage 

Assessment

A mechanism used to determine the impact and magnitude of damage and the 

resulting unmet needs of individuals, businesses, the public sector, and the 

community as a whole. Information collected is used by the State as a basis for 

the Governor’s request for a Presidential declaration, and by FEMA to

document the recommendation made to the President in response to the

Governor’s request. PDAs are made by at least one State and one Federal 

representative. A local government representative familiar with the extent and 

location of damage in the community often participates; other State and Federal 

agencies and voluntary relief organizations also may be asked to participate, as 

needed.

 

Radiation 

Sickness 

The symptoms characterizing the sickness known as radiation injury, resulting 

from excessive exposure of the whole body to ionizing radiation.

Radiological 

Monitoring 

The process of locating and measuring radiation by means of survey instruments 

that can detect and measure (as exposure rates) ionizing radiation.

Recovery The long-term activities beyond the initial crisis period and emergency response 
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-9

phase of disaster operations that focus on returning all systems in the community 

to a normal status or to reconstitute these systems to a new condition that is less 

vulnerable.

Regional 

Operating 

Center

The temporary operations facility for the coordination of Federal response and 

recovery activities, located at the FEMA Regional Office (or Federal Regional 

Center) and led by the FEMA Regional Director or Deputy Director until the 

DFO becomes operational. Once the ERT-A is deployed, the ROC performs 

a support role for Federal staff at the disaster scene.

Resource 

Management

Those actions taken by a government to: identify sources and obtain resources 

needed to support disaster response activities; coordinate the supply, allocation, 

distribution, and delivery of resources so that they arrive where and when most 

needed; and maintain accountability for the resources used.

Secondary 

Hazard 

A threat whose potential would be realized as the result of a triggering event that 

of itself would constitute an emergency. For example, dam failure might be a 

secondary hazard associated with earthquakes.

Standard 

Operating 

Procedure

A set of instructions constituting a directive, covering those features of

operations which lend themselves to a definite, step-by-step process of

accomplishment. SOPs supplement EOPs by detailing and specifying how

tasks assigned in the EOP are to be carried out.

State 

Coordinating 

Officer

The person appointed by the Governor to coordinate State, Commonwealth, or 

Territorial response and recovery activities with FRP-related activities of the 

Federal Government, in cooperation with the FCO.

State Liaison A FEMA official assigned to a particular State, who handles initial coordination 

with the State in the early stages of an emergency.

Storm Surge A dome of sea water created by the strong winds and low barometric pressure 

in a hurricane that causes severe coastal flooding as the hurricane strikes land.

Terrorism The use of--or threatened use of--criminal violence against civilians or civilian 

infrastructure to achieve political ends through fear and intimidation, rather than 

direct confrontation. Emergency management is typically concerned with the 
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-10

consequences of terrorist acts directed against large numbers of people (as 

opposed to political assassination or hijacking, which may also be considered 

"terrorism").

Tornado

 

A local atmospheric storm, generally of short duration, formed by winds rotating 

at very high speeds, usually in a counter-clockwise direction. The vortex, up to 

several hundred yards wide, is visible to the observer as a whirlpool-like column 

of winds rotating about a hollow cavity or funnel. Winds may reach 300 miles 

per hour or higher.

Tsunami Sea waves produced by an undersea earthquake. Such sea waves can reach a 

height of 80 feet and can devastate coastal cities and low-lying coastal areas.

Warning The alerting of emergency response personnel and the public to the threat of 

extraordinary danger and the related effects that specific hazards may cause. A 

warning issued by the NWS (e.g., severe storm warning, tornado warning, 

tropical storm warning) for a defined area indicates that the particular type of 

severe weather is imminent in that area.

Watch Indication by the NWS that, in a defined area, conditions are favorable for the 

specified type of severe weather (e.g., flash flood watch, severe thunderstorm 

watch, tornado watch, tropical storm watch).
SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page ACR-1

List of Acronyms 

The following are acronyms used in this Guide.

ACP

ALERT

ANS

ARC

ANAD

APG

BGAD

CB

CDC

access control point

Automated Local Evaluation in Real Time

alert and notification system

American Red Cross

Anniston Army Depot

Aberdeen Proving Ground

Blue Grass Army Depot

citizens band

Centers for Disease Control and Prevention

“CEO” Chief Executive Official

CERCLA Comprehensive Environmental Response, Compensation, and Liability Act

CFR Code of Federal Regulations

CHEMTREC Chemical Manufacturers’ Association Chemical Transportation Emergency

Center

CPG

CSEPP

DFO

Civil Preparedness Guide

Chemical Stockpile Emergency Preparedness Program

Disaster Field Office

DMAT

DOD

DOE

DOT

DRC

DWI

Disaster Medical Assistance Team

U.S. Department of Defense

U.S. Department of Energy

U.S. Department of Transportation

Disaster Recovery Center

Disaster Welfare Information

EAS Emergency Alert System

ECL emergency classification level

EMI Emergency Management Institute

EMP electromagnetic pulse

EMS emergency medical services

EOC emergency operating center

EOP emergency operations plan

EPA U.S. Environmental Protection Agency

EPCRA Emergency Planning and Community Right-to-Know Act

EPG Emergency Planning Guide
Glossary of Terms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page GLO-3

EPI emergency public information

EPZ Emergency Planning Zone

ERT

ERT-A

ERT-N

Emergency Response Team

Emergency Response Team Advance Element

Emergency Response Team National

ESF Emergency Support Function

EST Emergency Support Team

FAsT 

FCO

Field Assessment Team

Federal Coordinating Officer

FEMA Federal Emergency Management Agency

FHBM Flood Hazard Boundary Map

FIA Federal Insurance Administration

FIRM Flood Insurance Rate Map

FIS

FPEIS

Flood Insurance Study

Final Programmatic Environmental Inpact Statement

FRERP Federal Radiological Emergency Response Plan

FRP Federal Response Plan

GAR

GIS

Governor’s Authorized Representative

geographic information system

HAZMAT hazardous material

HRCQ highway route controlled quantity

IC

ICP

Incident Commander

Incident Command Post

ICS 

IRZ

Incident Command System

Immediate Response Zone

JIC Joint Information Center

JIS

JNACC

LEPC

MOU

mph

MSDS

Joint Information System

Joint Nuclear Accident Coordinating Center

Local Emergency Planning Committee

memorandum of understanding

miles per hour

material safety data sheet

NAAP

NCP

NDA

NDMS

NFA

Newport Army Ammunition Plant

National Oil and Hazardous Substances Pollution Contingency Plan

National Defense Area

National Disaster Medical System

National Fire Academy
List of Acronyms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page ACR-3

NFIP

NOAA

NRC

NRT

NUREG

NWS

OPA

OSC

OSHA

PA

PAZ

PBA

National Flood Insurance Program

National Oceanic and Atmospheric Administration

Nuclear Regulatory Commission; National Response Center

National Response Team

Nuclear Regulation

National Weather Service

Oil Pollution Act

On-Scene Coordinator

U.S. Occupational Safety and Health Administration

public address

Protective Action Zone

Pine Bluff Arsenal

PDA 

PIO 

Preliminary Damage Assessment

Public Information Officer

PL

PPA

PUDA

PZ

RACES

RAP

REACT

Public Law

Performance Partnership Agreement

Pueblo Depot Activity

Precautionary Zone

Radio Amateur Civil Emergency Service 

Radiological Assistance Program

Radio Emergency Associated Communications Teams

REP Radiological Emergency Preparedness Program

ROC

ROD

Regional Operating Center

Record of Decision

RRP Regional Response Plan

SAME

SARA

SCO

SEMA 

SERC

SLG

Specific Area Message Encoder

Superfund Amendments and Reauthorization Act

State Coordinating Officer

State Emergency Management Agency

State Emergency Response Commission

State and Local Guide

SOP

SPCA

TEAD

UMDA

standard operating procedure

Society for the Prevention of Cruelty to Animals

Tooele Army Depot

Umatilla Depot Activity

USDA U.S. Department of Agriculture

USGS U.S. Geological Survey
List of Acronyms

SLG 101: Guide for All-Hazard Emergency Operations Planning 

(9/96)

page ACR-3

US&R urban search and rescue
SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-1

Bibliography

The publications listed below include both items that were consulted in preparing this document and 

items of potential interest to a planning team. The bibliographies of these works can point the planning 

team to more material. Note that the inclusion of an item here does not imply an endorsement and that, 

as of October 1, 1995, many FEMA publications reached their "sunset" date. While inoperative ("old") 

guidance may still serve as a source of ideas for the planning team, please consult a current FEMA 

Publications Catalog, FEMA-20, for the latest material.

 

General

Federal Emergency Management Agency. Are You Ready? Your Guide to 

Disaster Preparedness, H-34. Washington, DC: FEMA, 1993. 

_____. Disaster Mitigation Guide for Business and Industry, FEMA-190. 

Washington, DC: FEMA, 1990.

_____. Emergency Management Guide for Business and Industry, FEMA141. Washington, DC: FEMA, 1993.

Chapter 1 - Preliminary Considerations

Government's 

Responsibility 

for 

Emergency 

Management

Comprehensive

Emergency 

Management

National Governors' Association. A Governor's Guide to Emergency

Management. Washington, DC: NGA, 1990.

Robert T. Stafford Disaster Relief and Emergency Assistance Act, Public 

Law 93-288, as amended.

National Governors' Association. 1978 Emergency Preparedness Project: 

Final Report. Washington, DC: NGA, 1978. 

Drabek, T.E., and G.J. Hoetmer, eds. Emergency Management: Principles 

and Practice for Local Government. Washington, DC: ICMA, 

1991.

Chapter 2 - The Planning Process
Bibliography

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-2

General 

Process

Hazard 

Analysis: 

General 

Concepts and 

Principles

Drabek, T.E., and G.J. Hoetmer, eds. Emergency Management: Principles 

and Practice for Local Government. Washington, DC: ICMA, 

1991. See especially Chapters 3, 4, and 7.

National Fire Protection Association. Recommended Practice for Disaster 

Management, NFPA 1600. Quincy, MA: NFPA, 1995.

Burby, R.J. "The Technical Feasibility of Risk Analysis", Chapter 7 of Sharing 

Environmental Risks: How to Control Governments' Losses in 

Natural Disasters. Boulder, CO: Westview Press, 1991. pp. 129-

153.

Cheok, M.C., et al. Development of a Methodology for Comprehensive 

Hazard Analysis - A Feasibility Study, report prepared for FEMA. 

Gaithersburg, MD: NUS Corporation, 1985.

Council of State Governments. The States and Natural Hazards. Lexington, 

KY: 1979.

Fischhoff, B., et al. Acceptable Risk. Cambridge: Cambridge University

Press, 1981.

Kates, R.W., et al., eds. Perilous Progress: Managing the Hazards of 

Technology. Boulder, CO: Westview Press, 1985. 

Mitchell, J.K. "Human Dimensions of Environmental Hazards: Complexity 

Disparity, and the Search for Guidance", Chapter 6 of A. Kirby, ed., 

Nothing to Fear: Risks and Hazards in American Society. Tucson: 

University of Arizona Press, 1990.

National Fire Protection Association. Recommended Practice for Disaster 

Management, NFPA 1600. Quincy, MA: NFPA, 1995. See the 

Appendix.

Palm, R.I. Natural Hazards: An Integrative Framework for Research and 

Planning. Baltimore: Johns Hopkins University Press, 1990.

Chapter 3 - Emergency Operations Plan Format 
Bibliography

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-3

Daines, G.E. "Planning, Training, and Exercising", Chapter 6 of T.E. Drabek 

and G.J. Hoetmer, eds., Emergency Management: Principles and 

Practice for Local Government. Washington, DC: ICMA, 1991. 

pp. 161-200.

Chapter 5 - Functional Annex Content

General

Direction and 

Control

Communications

and Warning

Emergency 

Public 

Information

Federal Emergency Management Agency. Objectives for Local Emergency 

Management, CPG 1-5. Washington, DC: FEMA, 1984. 

Federal Emergency Management Agency. Emergency Operating Centers 

Handbook, CPG 1-20. Washington, DC: FEMA, 1984.

_____. Exemplary Practices in Emergency Management: The California 

FIRESCOPE Program, FEMA-117. Emmitsburg, MD: NETC/EMI, 

1987.

_____. The Incident Command System, NFA-ICS-SM. Emmitsburg, MD: 

NETC/NFA, 1989.

_____. Incident Command System (ICS) and Emergency Operating

Center (EOC) Interface, Curriculum Advisory Committee report. 

Emmitsburg, MD: NETC/EMI, 1991. 

_____. Overview of the Incident Command System, SM-305.7. 

Emmitsburg, MD: NETC/EMI, 1992.

_____. Guidance for Radio Amateur Civil Emergency Service, CPG 1-15. 

 Washington, DC: FEMA, 1991.

The Federal Emergency Management Agency and the American Red Cross

have prepared a number of brochures to give families information to protect 

themselves in emergencies and disasters. The three most popular are listed 

below; they are available through FEMA’s Printing and Publications Branch or 

on FEMA’s Web page (http://www.fema.gov):

ÿ Emergency Preparedness Checklist, L-154. 
Bibliography

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-4

Evacuation

Resource 

Management

ÿ Your Family Disaster Plan, L-191/ARC 4466.

ÿ Your Family Disaster Supplies Kit, L-189/ARC 4463.

Holton, James L. The Electronic Media and Disasters in the High-Tech 

Age, FEMA 109. Emmitsburg, MD: NETC/EMI, 1985.

Federal Emergency Management Agency. Evacuation: An Assessment of 

Planning and Research, RR-9. Washington, DC: FEMA, 1987.

_____. Evacuation in Emergencies: An Annotated Guide to Research. 

Washington, DC: FEMA, 1987.

_____. Transportation Planning Guidelines for the Evacuation of Large 

Populations, CPG 2-15. Washington, DC: FEMA, 1984.

Federal Emergency Management Agency/National Donations Steering

Committee, Donations Management Guidance Manual, January

1995.

General Services Administration. The Management of Resource Crises at 

State, Municipal, and Community Levels: A Guide for Contingency 

Planning. Washington, DC: GSA, 1976.

Chapter 6 - Hazard-Unique Planning Considerations

Overview of 

Various 

Hazards

Council of State Governments. The States and Natural Hazards. Lexington, 

KY: CSG, 1979.

Federal Emergency Management Agency. Disaster Operations: A

Handbook for Local Governments, CPG 1-6. Washington, DC: 

FEMA, 1981.

_____. Principal Threats Facing Communities and Local Emergency 

Management Coordinators, FEMA-191. Washington, DC: FEMA, 

1992.
Bibliography

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-5

_____. Risks and Hazards - A State by State Guide, FEMA-196. 

Washington, DC: FEMA, 1990.

Earthquake Federal Emergency Management Agency. Comprehensive Earthquake 

Preparedness Planning Guidelines: County, FEMA-72. 

Washington, DC: FEMA, 1985.

_____. Comprehensive Earthquake Preparedness Planning Guidelines: 

Large City, FEMA-146. Washington, DC: FEMA, 1987.

_____. Estimating Losses from Future Earthquakes, FEMA-177. 

Washington, DC: FEMA, 1989.

_____. State and Local Earthquake Hazards Reduction: Implementation 

of FEMA Funding and Support, CPG 2-18. Washington, DC: FEMA, 

1985.

Flooding and 

Dam Failure

Federal Emergency Management Agency. Emergency Action Planning

Guidelines for Dams, FEMA-64. Washington, DC: FEMA, 1985.

_____. Federal Guidelines for Dam Safety, FEMA-93. Washington, DC: 

FEMA, 1979.

_____. Guide to Flood Insurance Rate Maps, FIA-14. Washington, DC: 

FEMA, 1988.

_____. How to Read Flood Hazard Boundary Maps, FIA-3. Washington, 

DC: FEMA, 1981.

_____. Model State Dam Safety Program, FEMA-123. Washington, DC: 

FEMA, 1987. 

_____. National Dam Safety Program for State and Local Officials, CPG 

1-39. Washington, DC: FEMA, 1988.

_____. Reducing Losses in High Risk Flood Hazard Areas: A Guidebook 

for Local Officials, FEMA-116. Washington, DC: FEMA, 1987.

Hazardous Federal Emergency Management Agency. Federal Radiological Emergency 
Bibliography

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-6

Materials Response Plan (FRERP); Operational Plan; Notice.. In: Federal 

Register, Vol. 61, No. 90, May 8, 1996.

_____. Federal Radiological Emergency Response Plan (FRERP);

Operational Plan; Correction. In: Federal Register, Vol. 61, No. 

109, June 5, 1996.

_____. Guidance for Developing State, Tribal, and Local Radiological 

Emergency Response Planning and Preparedness for

Transportation Accidents, FEMA-REP-5, Rev. 1. Washington, DC: 

 FEMA, 1992. 

_____. Guidelines for Public Sector Hazardous Materials Training: First 

Public Edition.. Emmitsburg, MD: NETC/EMI, 1994. Developed 

under an agreement with the U.S. Department of Transportation and in 

coordination with other interested parties.

_____. Preparedness for Hazardous Materials Emergencies in Railyards: 

Guidance for Railroads and Adjacent Communities, FEMA-218. 

Washington, DC: FEMA, 1991.

_____, U.S. Department of Transportation, and Environmental Protection

Agency. Handbook of Chemical Analysis Procedures. Washington, 

DC: FEMA, 1989.

National Response Team. Hazardous Materials Emergency Planning

Guide, NRT-1. Washington, DC: NRT, 1987.

_____. Criteria for Review of Hazardous Materials Emergency Plans, 

NRT-1A. Washington, DC: NRT, 1988. 

U.S. Congress, Office of Technology Assessment. Transportation of

Hazardous Materials, OTA-SET-304. Washington, DC: OTA,

1986.

U.S. Department of Energy. Transporting Radioactive Material... Answers 

to Your Questions, DOE/DP-0064. Washington, DC: DOE, 1989. 
Bibliography

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-6

U.S. Department of Labor, Occupational Safety and Health Administration. 29 

CFR Part 1910: Hazardous Waste Operations and Emergency

Response; Final Rule. In: Federal Register, Vol. 54, No. 42, March 

6, 1989. 

U.S. Department of Transportation. Guidance for Conducting Hazardous 

Materials Flow Surveys, DOT-VNTSC-RSPA-94-2. Washington, 

DC: US DOT, 1995.

 

_____, Transport Canada, Secretariat of Transport and Communications

(Mexico). 1996 North American Emergency Response Guidebook, 

 NAERG96.

U.S. Environmental Protection Agency. 40 CFR Parts 9 and 300: National 

Oil and Hazardous Substances Pollution Contingency Plan; Final 

Rule. In: Federal Register, Vol. 59, No. 178, September 15, 1994.

_____. Chemicals in Your Community: A Guide to the Emergency

Planning and Community Right-to-Know Act, EPA-550-K-93-003. 

 Washington, DC: US EPA, 1988. 

_____. A Review of Federal Authorities for Hazardous Materials Accident 

Safety, EPA-550-R-93-002. Washington, DC: US EPA, 1993. 

_____. SARA Title III Fact Sheet, EPA-550-F-93-002. Washington, DC: 

US EPA, 1993. 

_____. U.S. Department of Transportation, and Federal Emergency

Management Agency. Technical Guidance for Hazards Analysis: 

Emergency Planning for Extremely Hazardous Substances. 

Washington, DC: US EPA, 1987.

U.S. House of Representatives, Committee on Public Works and

Transportation, Subcommittee on Surface Transport. Transportation 

of Hazardous Materials - Hearings, 101-52. Washington, DC: GPO, 

1989.

Hurricane Federal Emergency Management Agency. Guide to Hurricane Preparedness 
Bibliography

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-8

Lethal 

Unitary 

Chemical 

Agents and 

Munitions

Nuclear 

Conflict

Nuclear 

Power Plant 

Accident

Planning for State and Local Officials, CPG 2-16. Washington, 

DC: 1984.

Federal Emergency Management Agency and U.S. Department of the Army. 

Planning Guidance for the Chemical Stockpile Emergency

Preparedness Program. Washington, DC: FEMA, 1994.

Federal Emergency Management Agency. Life Support Operations in

Shelters, CPG 2-20. Washington, DC: FEMA, 1988.

_____. Nuclear Attack Environment Handbook, H-21. Washington, DC: 

FEMA, 1990.

_____. Radiation Safety in Shelters, CPG 2-6.4. Washington, DC: FEMA, 

1983.

National Security Council. The National Security Strategy of the United 

States of America - Report. Washington, DC: NSC, February 25, 

1994.

(Note that the entire set of FEMA-REP series publications is important. The 

following items were referenced.)

Federal Emergency Management Agency. Criteria for Preparation and 

Evaluation of Radiological Emergency Plans and Preparedness In 

Support of Nuclear Power Plants, NUREG-0654/FEMA REP-1, 

Rev. 1. Washington, DC: FEMA, 1987. 

_____. Federal Radiological Emergency Response Plan (FRERP);

Operational Plan; Notice. In: Federal Register, Vol. 61, No. 90, 

May 8, 1996.

_____. Federal Radiological Emergency Response Plan (FRERP);
Bibliography

SLG 101: Guide for All-Hazard Emergency Operations Planning (9/96)

page BIB-8

Operational Plan; Correction. In: Federal Register, Vol. 61, No. 

109, June 5, 1996.

U.S. Environmental Protection Agency. Manual of Protective Action Guides 

and Protective Actions for Nuclear Incidents, EPA 400-R-92-001. 

Washington, DC: US EPA, 1991.

Chapter 7 - Linking Federal and State Emergency Response Operations

Federal Emergency Management Agency. The Federal Response Plan, 

FEMA-229. Washington, DC: FEMA, 1992.

Robert T. Stafford Disaster Relief and Emergency Assistance Act, Public 

Law 93-288, as amended.