GTA 90-01-020

DSCA Handbook

Tactical Level Commander

and Staff Toolkit

Liaison Officer Toolkit on Back Cover

GTA 90-01-021

Expires 30 January 2012

Approved for public release; distribution is unlimited.
For sale by the Superintendent of Documents, U.S. Government Printing Office. 

Internet: bookstore.gpo.gov Phone: toll free (866) 512-1800; D.C. area (202) 512-

1800 Fax: (202) 512-2104 Mail: Stop IDCC, Washington, D.C. 20402-0001 

ISBN 978-0-16-086060-7

Quick Reference Guide

All Hazards Planning Factors Page 5-1

Tactical Level Commander

Executive Officer

Personnel/Human Resources

Intelligence

Plans and Operations

Logistics and Resource Management

Communications

Public Affairs

Staff Judge Advocate

Chaplain

Medical Officer/Surgeon

Aviation Officer

Safety Officer

Page 5-3

Page 5-11

Page 5-14

Page 5-18

Page 5-22

Page 5-28

Page 5-36

Page 5-40

Page 5-45

Page 5-47

Page 5-54

Page 5-67

Page 5-69

Wildland Fire 

Planning Factors

Page 7-1

Page 7-20

Hurricane and Tornado 

Planning Factors

Page 8-1

Page 8-14

Earthquake 

Planning Factors

Page 9-1

Page 9-17

Flood

Planning Factors

Page 10-1

Page 10-16

Winter Storm

Planning Factors

Page 11-1

Page 11-15
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NAVIGATING THE HANDBOOK

The DSCA Handbook is divided into five major sections—the 

Tactical Level Commander and Staff Toolkit on this side of the 

handbook with four sections, background, planning, staff annexes, 

and reference annexes; and the Liaison Officer Toolkit on the reverse 

side. Major sections are delineated by colored bottom borders as 

indicated in the section descriptions that follow.

Background Chapters

Chapter 1 contains background information relative to Defense 

Support of Civil Authorities (DSCA), including legal, doctrinal, and 

policy issues. This chapter also provides a quick summary of the 

legal underpinnings related to DSCA.

Chapter 2 is an overview of incident management processes,

including the National Response Framework (NRF), National 

Incident Management System (NIMS), and Incident Command 

System (ICS), as well as Department of Homeland Security (DHS)

organizations.

Chapter 3 discusses civilian and military responses to a natural 

disaster. Also included are the organization and command 

relationships involved in DoD response to a disaster.

Chapter 4 is a brief review of the Joint Operation Planning 

Process and mission analysis.

Planning Chapters

Chapter 5 provides DSCA planning factors for response to all 

hazard events.

Chapter 6 is a review of safety and operational/composite risk 

management processes.

Chapters 7 through 11 contain the Concepts of Operation 

(CONOPS) and details five natural hazards/disasters and the

pertinent planning factors for each within the scope of DSCA. 
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Annexes complement the content of this handbook by providing 

other useful information.

Staff Annexes

Annex A contains information on Legal Aspects of DSCA.

Annex B discusses Standing Rules for the Use of Force (SRUF)

and contains SRUF templates.

Annex C is a Suggested Individual Equipment Matrix.

Annex D provides DSCA Mission Assignment Review Criteria.

Annex E explains the Request for Assistance/Mission 

Assignment Process.

Annex F lists the DoD Pre-Scripted Mission Assignments 

(PSMAs) associated with Emergency Support Functions.

Annex G gives examples of Command Messages and Straight 

Talk Messages.

Annex H lists State TAGs/National Guard POCs.

Annex I provides Defense Coordinating Officer Contact 

Information.

Annex J contains copies of pertinent Reports—Joint Personnel 

Status and Casualty Report (JPERSTAT) and Logistics Status 

Report (LOGSTAT)—and a Resource Tracking List.

Reference Annexes

Annex K lists References used in the development of this 

handbook.

Annex L lists Useful Websites.

Annex M is the Glossary/Terms annex.

Annex N is the Acronym annex.
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Liaison Officer Toolkit 

Chapter 1, Liaison Handbook: Duties and Responsibilities is 

designed to assist Liaison Officers in performing their duties. 

Chapters 2 through 9 include information on capabilities of High 

Demand Task Organizations in a DSCA environment.

Chapter 2: Military Law Enforcement

Chapter 3: Military Engineering

Chapter 4: Aviation

Chapter 5: Communication

Chapter 6: Search and Rescue

Chapter 7: Medical Capabilities

Chapter 8: Mortuary Affairs

Chapter 9: CBRNE Response Capabilities

Special information is found in color-coded boxes throughout the 

handbook.

Green note boxes indicate critical information.

Orange document boxes provide references pertinent to the 

subject area. 

Red boxes provide warnings.

Blue boxes indicate vignettes.

Gray boxes give information on special topics of interest. 
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Preface

PREFACE

This Defense Support of Civil Authorities (DSCA) Handbook was 

prepared by the Joint Test and Evaluation (JT&E) Command, Quick 

Reaction Test (QRT) team under the direction of the Office of the 

Secretary of Defense (OSD), Director Operational Test and 

Evaluation (DOT&E), Deputy Director, Air Warfare (DD, AW).

Purpose

The purpose of this handbook is to assist tactical level Commanders 

and Staffs in planning and executing DSCA operations. 

Scope

The DSCA Handbook provides overarching processes and 

recommended planning factors to enable tactical level Commanders 

and their Staffs to properly plan and subsequently execute assigned 

DSCA missions for all-hazard operations, excluding Chemical, 

Biological, Radiological, Nuclear, high-yield Explosives (CBRNE) 

or acts of terrorism. 

Applicability

The DSCA Handbook applies to all United States military forces, 

including Department of Defense (DoD) components (Active and 

Reserve Forces, and National Guard when in federal status). 

Additionally, these planning factors may be useful as a guide to 

National Guard forces under state control. 

This document also provides useful information for local and state 

first responders, Department of Homeland Security (DHS) personnel, 

the United States Coast Guard, and Federal Emergency Management 

Agency (FEMA) personnel operating within the National Response 

Framework (NRF), National Incident Management System (NIMS), 

and Incident Command System (ICS).
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Endorsements

The DSCA Handbook has been endorsed by the following agencies:

The United States Northern Command

United States Marine Corps 

United States Air Force

The National Guard Bureau

Federal Emergency Management Agency
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Acknowledgements

ACKNOWLEDGEMENTS

The following agencies and commands provided direction and 

resources in the development of the DSCA Handbook.

Director, Operational Test and Evaluation (DOT&E), Office of the 

Secretary of Defense (OSD), Washington, District of Columbia.

The Joint Program Office (JPO), Suffolk, Virginia.

The Joint Test and Evaluation (JT&E) Office, Alexandria, Virginia.

Headquarters, Army Test and Evaluation Command (ATEC), 

Alexandria, Virginia.

We acknowledge the following individuals who provided invaluable 

subject matter expertise in the development of the DSCA 

Handbook.

Mr. Michael D. Burke, (Civil Support) Combined Arms Doctrine 

Directorate, Combined Arms Center, Fort Leavenworth, Kansas.

Mrs. Clarisa Lamar, (Medical) Doctrine Literature Division, 

Directorate of Combat and Doctrine Development, Fort Sam 

Houston, Texas.

Mr. Robert F. Gonzales, Office of the Staff Judge Advocate, United 

States Army North (Fifth Army), Fort Sam Houston, Texas.

Mr. Joseph R. Osborn, Safety Director, United States Army North 

(Fifth Army), Fort Sam Houston, Texas.

Chaplain Charles E. Woods, National Guard Bureau Office of the 

Chaplain, Arlington, Virginia.

Colonel Warren Hurst, Commander, 123d Contingency Response 

Group, Kentucky Air National Guard.

Commander Gregg Gray, United States Navy, Commander Naval 

Air Force U.S. Atlantic Fleet.
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Lieutenant Colonel David C. Weir, United States Marine Corps 

Reserve, Marine Corps Installations West, Camp Pendleton, 

California.

Captain Maria E. Perkins, 168th Aerial Refueling Wing, Public 

Affairs Officer, Alaska Air National Guard, Anchorage, Alaska.

Mr. Ronnie Graham, J-4, United States Northern Command, 

Colorado Springs, Colorado.

Colonel Martin Kidner, Joint Director of Military Support (JDOMS),

Wyoming Army National Guard, Cheyenne, Wyoming.

We would also like to acknowledge the following agencies. Without

their support this project could not have been possible.

The Department of Homeland Security, Chief, Plans Division, 

Deliberate Plans, Office of Operations Coordination and 

Planning, Washington, District of Columbia.

The Federal Emergency Management Agency, Office of Response 

and Recovery, Washington, District of Columbia.

Office of the Assistant Secretary of Defense for Homeland Defense 

and Americas' Security Affairs, OASD (HD/ASA).

Headquarters, United States Marine Corps, Plans, Policies & 

Operations, Security Division, Homeland Defense Branch.

Headquarters, Joint Forces Command, Norfolk, Virginia.

Headquarters, United States Northern Command, Colorado Springs, 

Colorado. 

United States Pacific Command (USPACOM) and Joint Task Force 

Homeland Defense (JTF-HD) Staffs, Fort Shafter, Hawaii.

Headquarters, United States Army North, (Fifth Army), San 

Antonio, Texas.
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FEMA Region IV, VI, IX, and X, Defense Coordinating Officers and 

Defense Coordinating Elements as well as the PACOM and 

NIFC Defense Coordinating Officers.

Headquarters, United States Army Corps of Engineers, Vicksburg, 

Mississippi and the USACE Liaison to NORAD and U.S. 

Northern Command.

Headquarters, Forces Command, Fort McPherson, Georgia.

Headquarters, United States Marine Corps Installations West, Camp 

Pendleton, California.

Headquarters, National Guard Bureau, J7 Doctrine Branch, 

Arlington, Virginia.

Joint Forces Headquarters, Alaska National Guard and the Alaska 

National Guard, Anchorage, Alaska.

Joint Forces Headquarters, New Hampshire National Guard, 

Concord, New Hampshire.

Joint Forces Headquarters, Iowa National Guard, Johnston, Iowa.

Joint Forces Headquarters, New York National Guard, Latham, New 

York.

The Hawaii Army National Guard, CBRNE Enhanced Response 

Force Package, Oahu, Hawaii.

The United States Navy Fleet Forces Command, Norfolk, Virginia.

The United States Navy Emergency Preparedness Liaison Officer 

Program Manager.

Coast Guard Headquarters, Commandant, United States Coast 

Guard, Washington, District of Columbia.

The United States Coast Guard Emergency Preparedness Liaison 

Officer Program Manager.

The National Interagency Fire Center, Boise, Idaho.
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Chief Brad Harris, California Department of Forestry and Fire 

Protection (CAL FIRE), Sacramento, California.

The San Francisco Fire Department, San Francisco, California.

Nick Herring, Deputy Chief Ranger, Yellowstone National Park, 

Yellowstone, California.

The New York State Emergency Management Office, Albany, New 

York.

The Alaska Division of Homeland Security and Emergency 

Management.

The 3d Maneuver Enhancement Brigade, Fort Richardson, Alaska.

The 396th Combat Support Hospital (United States Army Reserve), 

Vancouver, Washington.

The Emergency Medical Detachments (EMEDS) from Michigan, 

Alaska, and New York.

Army Knowledge On-Line, Domestic Operations Forum Managers, 

Mr. Neil Stenzel and Mr. Steve Parsons.
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Table of Contents

TABLE OF CONTENTS

NAVIGATING THE HANDBOOK i

PREFACE v

ACKNOWLEDGEMENTS xiii

CHAPTER 1: INTRODUCTION 1-1

1.1 Background 1-1

1.2 Authorities Governing DSCA 1-4

1.3 Legal Authority 1-4

1.4 Department of Homeland Security 1-6

1.5 Homeland Security Presidential Directive – 5 1-6

1.6 Homeland Security Presidential Directive – 8 1-7

CHAPTER 2: INCIDENT MANAGEMENT PROCESSES AND 

DEPARTMENT OF HOMELAND SECURITY 

ORGANIZATIONS 2-1

2.1 Introduction 2-1

2.2 National Response Framework 2-2

2.3 National Incident Management System 2-3

2.4 The Incident Command System 2-6

2.5 The Joint Field Office 2-9

2.6 Department of Homeland Security Emergency Management 

Organizations 2-11

2.7 Emergency Support Functions 2-16

CHAPTER 3: CIVIL AND MILITARY RESPONSES 3-1

3.1 Incident Response Process 3-1

3.2 Local/First Tier Response 3-1

3.3 County and Regional/Second and Third Tier Response 3-1

3.4 Tribal Governments 3-2

3.5 State/Fourth Tier Response 3-2

3.6 DoD Response 3-3

3.7 State Military Response 3-6

3.8 Emergency Management Assistance Compact 3-8

3.9 Federal Response 3-9

3.10 Natural Disaster Response (Federal Military) 3-11

Appendix 3.A: Military Duty Status Comparison 3-21
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CHAPTER 4: PLANNING IN A DSCA ENVIRONMENT 4-1

4.1 Joint Operation Planning Process Overview 4-1

4.2 Mission Analysis 4-1

CHAPTER 5: ALL-HAZARDS PLANNING FACTORS 5-1

5.1 Operational Phases 5-1

5.2 Tactical Level Commander 5-3

5.3 Executive Officer 5-11

5.4 A/N/S-1Personnel/Human Resources 5-14

5.5 A/N/S-2Intelligence 5-18

5.6 A/N/S-3/5/7Plans and Operations 5-22

5.7 A/N/S-4/8Logistics and Resource Management 5-28

5.8 A/N/S-6Communications 5-36

5.9 Public Affairs Officer/Information Officer 5-40

5.10 Staff Judge Advocate 5-45

5.11 Chaplain 5-47

5.12 Medical Officer/Surgeon/Medical Teams 5-54

5.13 Aviation Officer 5-67

5.14 Safety Officer/Non-Commissioned Officer 5-69

Appendix 5.A: NORTHCOM CONPLAN 3501-08 5-74

CHAPTER 6: SAFETY 6-1

6.1 Introduction 6-1

6.2 Hazards Identification and Mitigation 6-3

6.3 Areas of Special Concern 6-11

6.4 For More Information 6-11

Appendix 6.A: Composite Risk Management / Operational Risk 

Management 6-12

CHAPTER 7: WILDLAND FIRES 7-1

7.1 Introduction 7-1

7.2 Disaster-specific Information 7-1

7.3 Wildland Firefighting Response Authorities 7-3

7.4 Planning Factors 7-20

7.5 Additional Information 7-25

Appendix 7.A: Abridged Glossary of Firefighting Terms from the 

Fireline Handbook – January 1998 7-26
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CHAPTER 8: HURRICANE AND TORNADO 8-1

8.1 Introduction 8-1

8.2 Disaster-specific Information 8-1

8.3 Hurricane and Tornado Missions 8-13

8.4 Planning Factors 8-14

8.5 For More Information 8-17

CHAPTER 9: EARTHQUAKE 9-1

9.1 Introduction 9-1

9.2 Disaster-specific Information 9-1

9.3 Earthquake Missions 9-15

9.4 Planning Factors 9-17

9.5 For More Information 9-20

CHAPTER 10: FLOOD 10-1

10.1 Introduction 10-1

10.2 Disaster-specific Information 10-2

10.3 Flood Missions 10-12

10.4 Planning Factors 10-16

10.5 For More Information 10-18

Appendix 10.A: Military Vehicle Fording Depths and Limitations10-20

CHAPTER 11: WINTER STORM 11-1

11.1 Introduction 11-1

11.2 Disaster-specific Information 11-2

11.3 Winter Storm Missions 11-14

11.4 Planning Factors 11-15

11.5 For More Information 11-17

ANNEX A: LEGAL ASPECTS OF DSCA A-1

ANNEX B: STANDING RULES FOR THE USE OF FORCE B-1

ANNEX C: INDIVIDUAL EQUIPMENT MATRIX C-1

ANNEX D: MISSION ASSIGNMENT REVIEW CRITERIA D-1

ANNEX E: REQUEST FOR ASSISTANCE/ E-1

ANNEX F: PRE-SCRIPTED MISSION ASSIGNMENTS F-1

ANNEX G: COMMAND MESSAGES G-1
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ANNEX H: STATE TAGS AND NATIONAL GUARD POCS H-1

ANNEX I: DCO CONTACT INFORMATION I-1

ANNEX J: REPORTS J-1

ANNEX K: REFERENCES K-1

ANNEX L: USEFUL WEBSITES L-1

ANNEX M: GLOSSARY/TERMS M-1

ANNEX N: ABBREVIATIONS AND ACRONYMS N-1

LIST OF FIGURES

Figure 1-1. 2000-2008 Presidential Disaster Declarations 1-2

Figure 2-1. Components of the National Response Framework 2-2

Figure 2-2. NIMS Framework 2-4

Figure 2-3. ICS Command 2-7

Figure 2-4. Area Command Structure 2-8

Figure 2-5. ICS Unified Command Structure 2-8

Figure 2-6. Joint Field Office Structure 2-10

Figure 2-7. FEMA Regions 2-13

Figure 2-8. United States Coast Guard Districts 2-14

Figure 3-1. Stafford Act Declaration Process 3-10

Figure 3-2. USPACOM JTF-HD 3-12

Figure 3-3. Typical DCE Organization 3-13

Figure 3-4. Sample Augmented DCE Structure 3-14

Figure 4-1. Sample JOPP Inputs and Outputs 4-2

Figure 6-1. The 5-Step Risk Management Process 6-13

Figure 6-2. DA Form 7566 6-16

Figure 6-3. Risk Decision Authorities 6-17

Figure 7-1. NIFC Request for Assistance Process 7-7

Figure 7-2. MAFSS Aircraft 7-9

Figure 7-3. Military Helicopters Performing Water Bucket Operations 7-10

Figure 7-4. Military Deployment Timeline 7-17

Figure 8-1. Anatomy of a Supercell 8-10

Figure D-1. DSCA Mission Assignment (MA) Review Criteria D-2

Figure F-1. Example of FEMA Typing for Army Aircraft F-4
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LIST OF TABLES

Table 1-1. Federal Acts Concerning DSCA 1-5

Table 2-1. Overview of NIMS 2-5

Table 2-2. FEMA Regional Headquarters 2-12

Table 2-3. United States Coast Guard Operations Command 2-15

Table 2-4. Emergency Support Functions 2-16

Table 4-1. Steps in Mission Analysis 4-3

Table 6-1. Risk Assessment Matrix 6-14

Table 8-1. Hurricane Categories 8-5

Table 8-2. The Enhanced Fujita Scale for Tornado Damage 8-10

Table 9-1. Modified Mercalli Scale and the Richter Scale 9-3

Table 11-1. Wind Chill Chart with Time until Frostbite 11-9

Table B-1. Title 10 SRUF Card Template B-2

Table B-2. Commander‘s SRUF Responsibilities B-5

Table B-3. Title 32 and SAD National Guard RUF Template B-6

Table F-1. Summary of Approved DoD PSMAs for 2009 F-2

Table H-1. National Guard POCs by State H-1

Table I-1. Defense Coordinating Officers (DCOs) I-1
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Introduction

CHAPTER 1: INTRODUCTION

This chapter discusses the Department of Defense (DoD) 

directives and legal authorities for Defense Support of Civil 

Authorities (DSCA) operations, excluding Chemical, Biological, 

Radiological, Nuclear, or high-yield Explosives (CBRNE) or acts 

of terrorism.

1.1 Background

Every year, citizens of the United States, in all regions of the Nation, 

are threatened with loss of life and property as the result of natural 

disasters. In a period of only 8 years, between 2000 and 2008, natural 

disasters of considerable severity resulted in 426 Presidential 

Disaster Declarations, an average of 4 per month. 

National Guard units, under the control of their respective state 

governors, have traditionally been the primary military responders to 

domestic natural disasters and other such emergencies. Federal 

forces are generally called upon only after state resources are 

exhausted or overwhelmed, or a specific capability is otherwise 

unavailable and federal assistance has been requested by the 

governor.

Defense Support of Civil Authorities is defined in both Department 

of Defense Directive (DoDD) 5111.13 and DoDD 3025.dd. DoDD 

3025.dd defines DSCA as:

. . . support provided by U.S. Federal military forces, 

DoD civilians, DoD contract personnel, DoD 

Component assets, and National Guard forces when the 

Secretary of Defense, in coordination with the 

Governors of the affected States, authorizes use of those 

forces in response to requests for assistance from civil 

authorities or from qualifying entities for special events, 

domestic emergencies, designated law enforcement 

support, and other domestic activities.
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Figure 1-1. 2000-2008 Presidential Disaster Declarations
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Due to readiness requirements, military personnel are capable of 

rapid response to a broad spectrum of emergencies. Because military 

personnel and their associated equipment can often be effectively 

employed in civil support operations, civil authorities continue to 

call upon the military for assistance. 

The Federal Emergency Management Agency (FEMA), under the 

direction of the Department of Homeland Security (DHS), is the 

Primary Agency (PA) in the federal response to natural disasters. 

DoD resources, in coordination with FEMA, may be requested to 

augment local, state, and federal capabilities in assisting with a stateled response. An exception is wildland firefighting, in which case the 

National Interagency Fire Center (NIFC) is the PA.

This handbook has been developed primarily to support DSCA 

operations in the Area of Responsibility (AOR) of United States 

Northern Command (USNORTHCOM), including the 48 contiguous 

states, Alaska, Puerto Rico, and the Virgin Islands, and the AOR of 

United States Pacific Command (USPACOM) including Hawaii, 

Guam, and American Samoa. Specific references to 

USNORTHCOM in this document are not intended to exclude 

USPACOM.

The DSCA Handbook focuses on the role of DoD in 

domestic emergencies. It serves as an overview of DSCA 

operations and is not intended to be a single-source 

document for DSCA. Gaining a thorough understanding of 

DSCA operations requires commanders and their staffs to 

examine in detail DHS and Service documents, including:

• National Response Framework (NRF)

• National Incident Management System (NIMS)

• Chairman of the Joint Chiefs of Staff (CJCS) DSCA 

Execution Order (EXORD)

• Joint Publication (JP) 3-28, Civil Support

• Field Manual (FM) 3-28, Civil Support Operations

• Air Forces Northern (AFNORTH) DSCA Air Support 

Handbook
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• National Guard Regulation 500-1/Air National Guard 

Instruction 10-8101 (NGR 500-1/ANGI 10-8101) , 

National Guard Domestic Operations

• National Guard Bureau, Domestic Operations Manual

1.2 Authorities Governing DSCA

The authorities for provision of DSCA are found in legal statute, 

DoD policy, and crisis action orders. The authorities for DoD 

components to conduct DSCA operations are found in DoD 

Directives such as 3025.dd and CJCS EXORDs. Additional guidance 

for DoD support of civil authorities can be found in joint 

publications such as JP 3-28. Service-specific doctrine is referenced 

in Annex K of this handbook.

1.3 Legal Authority

A brief overview of the legal aspects of DoD participation in DSCA

operations is provided in the following paragraphs. More detailed 

information may be found in Annex A.

1.3.1 The Constitution

In the context of this handbook, ―the United States‖ includes 

the 50 states, the District of Columbia, and the territories of 

Puerto Rico, the Virgin Islands, Guam, and American Samoa

and the Commonwealth of the Northern Mariana Islands. 

Under the Tenth Amendment of the Constitution, each state/territory

of the United States has the primary responsibility to prepare for and 

respond to disasters and emergencies occurring within its borders.

The Constitution establishes the sovereignty of the states over many 

aspects of government. Additionally, and of particular importance to 

domestic operations, are the authorities granted by Congress to the 

states. Article 1, Section 8, Clause 16 of the Constitution, the Militia 

Act of 1903, and the National Defense Act of 1916 are the basis for 

the distinction between National Guard forces and Active 
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Component Title 10 forces. State governors retain authority over 

their respective National Guard forces. The authority over and 

control of DoD Title 10 forces are at the discretion of the President 

of the United States as the Commander-in-Chief.

In response to DSCA, expectations of DoD capabilities must be 

effectively managed and communicated. The goal is efficient 

execution of relief operations and successful synchronization of

military and civil capabilities after a disaster when local and state 

level infrastructure may be overwhelmed. 

Table 1-1. Federal Acts Concerning DSCA

Federal Acts and Reimbursement for DSCA

Stafford Act Economy Act

• Provides the authority for 

federal funding when approved 

by the President at the request 

of a state governor

• Funding reimburses 

INCREMENTAL costs to military 

forces in a Title 10 or Title 32 

status that have provided 

support at the federal, state, or 

local level 

• Has “pre-declaration essential 

DoD support” provision 

whereby a state governor may 

request essential DoD support 

from the President for up to ten 

days

• Used as authority to provide 

support between federal 

agencies for routine and 

emergency incidents

• Does NOT require a Presidential 

declaration 

• Funding reimburses the TOTAL 

cost of support, including pay 

and allowances, to military 

forces in a Title 10 or Title 32 

status that have provided 

support to other federal agencies 

(e.g., National Park Service, 

United States Forest Service)

1.3.2 The Stafford Act

The Robert T. Stafford Disaster Relief and Emergency Assistance 

Act (the Stafford Act) authorizes the President to issue major disaster 
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or emergency declarations in response to catastrophes that 

overwhelm state and local governments.

1.3.3 The Economy Act

The Economy Act permits federal agencies to provide resources and 

services to other federal agencies on a reimbursable basis. The 

Economy Act is also the basis for the general rule that DoD will not 

compete with commercial businesses. 

1.3.4 Restricting the Use of DoD—the Posse Comitatus Act

The Posse Comitatus Act (PCA) prohibits federal, state, and local 

authorities from using Title 10 forces for any direct civil law 

enforcement activities unless a Constitutional or Act of Congress 

exception applies. PCA does not prohibit federal forces from 

assisting state and local organizations with humanitarian disaster 

relief.

Because PCA is often misunderstood, it is important that 

commanders of organizations in a Title 10 role operating in a DSCA 

environment be familiar with the act and be able to explain it to civil 

authorities. PCA does not apply to National Guard in State Active 

Duty or Title 32 status; however, it does apply to National Guard in a 

Title 10 status. For a more complete discussion of PCA and its 

exceptions, see Annex A.

1.4 Department of Homeland Security 

DHS is a Presidential cabinet organization with the responsibility of 

security of the homeland, including response to national disasters at 

the federal level. Both FEMA and the United States Coast Guard 

(USCG) are part of DHS. For more detailed information on FEMA 

and the USCG‘s role in DSCA, see Chapter 2.

1.5 Homeland Security Presidential Directive – 5

Homeland Security Presidential Directive – 5 (HSPD – 5):

Management of Domestic Incidents (2003) required the Secretary of 

Homeland Security to develop and administer a National Incident 

Management System and a National Response Plan. (The National 
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Response Plan was replaced by the National Response Framework in

2008.) The directive requires all federal departments and agencies to 

adopt NIMS and use it in individual domestic incident management 

programs and activities, as well as in support of state, local, or tribal 

entities. It also provides detail on the authorities of various 

government officials within the national incident management 

system.

1.5.1 National Incident Management System/Incident Command 

System 

NIMS is designed to aid in managing prevention of, preparation for, 

response to, and recovery from terrorist attacks, major disasters, and 

other emergencies. NIMS employs the Incident Command System 

(ICS), a standardized, on-scene approach to all-hazards incident 

management. Most civilian Incident Commanders (ICs) employ ICS. 

Both NIMS and ICS are discussed in greater detail in Chapter 2.

1.5.2 National Response Framework 

The NRF presents the guiding principles that enable all response 

partners to prepare for and provide a unified national response to 

disasters and emergencies. It establishes a comprehensive, national, 

all-hazards approach to domestic incident response. The NRF defines 

the principles, roles, and structures that organize how we respond as 

a nation. In addition, the NRF:

• Describes how communities, tribes, states, the federal 

government, the private sector, and non-governmental partners 

work together to coordinate national response

• Describes specific authorities and best practices for managing 

incidents

• Builds upon the national incident management system, which 

provides a consistent template for managing incidents

1.6 Homeland Security Presidential Directive – 8

HSPD-8: National Preparedness (2003), a companion directive to 

HSPD-5, establishes policies to strengthen preparedness of the 

United States in order to prevent and respond to threatened or actual 

domestic terrorist attacks, major disasters, and other emergencies. 
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The directive requires a national domestic all-hazards preparedness 

goal, with established mechanisms for improved delivery of federal 

preparedness assistance to state and local governments. It also 

outlines actions to strengthen preparedness capabilities of federal, 

state, and local entities. 

NOTES
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CHAPTER 2: INCIDENT MANAGEMENT PROCESSES AND 

DEPARTMENT OF HOMELAND SECURITY 

ORGANIZATIONS

This chapter gives an overview of the Incident Command 

Systems, the National Response Framework (NRF) and the 

National Incident Management System (NIMS). In addition, it 

provides tactical level personnel with an overview of the 

Department of Homeland Security‘s subordinate agencies that 

military personnel may encounter during a Defense Support of 

Civil Authorities (DSCA) operation and introduces the federal

Emergency Support Functions.

2.1 Introduction

The NRF and NIMS are designed to improve the Nation‘s incident 

management capabilities and overall efficiency in response to 

domestic incidents. Given the complexity and extent of local, state, 

and federal participation in domestic incident management, there are 

numerous national-level operational plans and agreements that depict 

roles and responsibilities of participants. Together, the NRF and the 

NIMS integrate the various capabilities into a cohesive and

coordinated framework for domestic incident management. Each of 

these two documents will be examined in greater detail in the 

following sections.

The Federal Emergency Management Agency (FEMA) 

Emergency Management Institute (EMI) offers an online 

course designed to introduce the NRF (NRF: An 

Introduction – IS 800.b). In addition, FEMA has developed 

numerous other independent study courses for personnel 

involved in domestic incident management, including a 

course on NIMS (NIMS: An Introduction – IS 700.a). To 

access either of these courses, or to obtain the latest 

information on and copies of NRF, visit the NRF Resource 

Center web site at www.fema.gov/emergency/nrf/
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2.2 National Response Framework

The NRF is designed to reduce vulnerability to natural and manmade 

hazards, minimize damage, and assist in recovery. It is an alldiscipline, all-hazards plan that establishes a single framework for 

management of domestic incidents. It also provides the structure and 

mechanisms for coordination of federal support to local, tribal, and 

state incident managers.

The NRF is intended to ensure that government executives, leaders 

of private sector and Non-Governmental Organizations (NGOs), and 

emergency management practitioners across the Nation understand 

domestic incident response roles, responsibilities, and relationships 

in order to respond more effectively. Additionally, the NRF

describes special circumstances in which the federal government 

exercises a larger role, including incidents where federal interests are 

involved and catastrophic incidents where a state would require 

significant support. It uses the foundation provided by the Homeland 

Security Act, Homeland Security Presidential Directive-5, and the 

Stafford Act to provide a comprehensive, all-hazards approach to 

domestic incident management.

Figure 2-1. Components of the National Response Framework

The overarching objective of response activities centers upon saving 

lives and protecting property and the environment. Five key 
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principles of operations within the NRF define response actions in 

support of the Nation‘s response mission. Taken together, these five 

principles of operation constitute the national response doctrine

characterized by:

• Engaged partnerships

• Tiered response

• Scalable, flexible, and adaptable operational capabilities

• Unity of effort through unified command

• Readiness to act

2.3 National Incident Management System 

The NIMS provides doctrine, concepts, principles, terminology, and 

organizational processes that establish a template for incident 

management. Using this template enables local, tribal, state, and 

federal governments, as well as private sector, NGOs and the 

Department of Defense (DoD) to work with unity of effort in disaster 

relief operations.

Incidents typically begin and end locally and are managed on a daily 

basis at the lowest possible geographical, organizational, and 

jurisdictional level. However, there are instances in which successful 

incident management operations depend on the involvement of 

multiple jurisdictions, levels of government, functional agencies, 

and/or emergency responder disciplines. These instances require 

effective and efficient coordination across this broad spectrum of 

organizations and activities. 

Incident management refers to how incidents are managed across 

homeland security activities, including prevention, protection, 

response, mitigation, and recovery. The NIMS framework forms the 

basis for interoperability and compatibility that enables a diverse set 

of public and private organizations to conduct well-integrated and 

effective emergency management.
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Figure 2-2. NIMS Framework
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Table 2-1. Overview of NIMS

What NIMS is: What NIMS is not: 

• A comprehensive, 

nationwide, systematic 

approach to incident 

management, including the 

Incident Command System

(ICS), Multiagency 

Coordination Systems, and 

Public Information 

• A set of preparedness 

concepts and principles for 

all hazards

• Essential principles for a 

common operating picture 

and interoperability of 

communications and 

information management 

• Standardized resource 

management procedures 

that enable coordination 

among different jurisdictions 

or organizations 

• Scalable, for use at all 

incidents (from day-to-day to 

large-scale) 

• A dynamic system that 

promotes ongoing 

management and 

maintenance 

• A static system 

• A response plan 

• A communications plan 

• Used only during large-scale 

incidents

• Applicable only to certain 

emergency management/

incident response personnel 

• Only the ICS or an 

organization chart 

The standards and protocols laid out in NIMS are mandatory 

for all federal agencies, including DoD.
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The NIMS incident management structure has three components:

• The Incident Command System 

• Interagency coordination systems

• Public information systems

NIMS distinguishes between command authority and coordination 

authority. Command authority is vested in the Incident Commander

(IC) for a single incident or an Area Commander for multiple 

incidents or jurisdictions. Coordination authority is vested in various 

coordinating officers who have the authority to make decisions 

within their respective jurisdictions.

2.4 The Incident Command System 

Most incidents are managed locally and are typically handled by 

local communications/dispatch centers and emergency management/

response personnel within a single jurisdiction. In other instances, 

incidents begin with a single response within a single jurisdiction 

and rapidly expand to multidisciplinary, multijurisdictional levels 

requiring significant additional resources and operational support. 

ICS is a widely applicable management system designed to enable 

effective, efficient incident management. ICS addresses incident 

command in terms of single Incident Command, Area Command, 

and Unified Command. It provides a flexible core mechanism for 

coordinated and collaborative incident management. When a single 

incident covers a large geographical area, multiple local emergency 

management and incident response agencies may be required. 

Effective cross-jurisdictional coordination using processes and 

systems is absolutely critical in this situation. 

2.4.1 Single Incident Command

The IC, usually an official of local police, fire or other municipal 

service, has the direct tactical and operational responsibility for 

conducting all incident management activities. He or she is 

specifically responsible for ensuring incident safety, providing 

information services regarding the incident, and establishing and 

maintaining liaison with other agencies participating in the incident. 

He or she also has overall responsibility for managing the incident by 
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defining objectives, planning strategies, and implementing tactics. 

To discharge these responsibilities, the IC may appoint one or more 

deputies from either the same or different agencies. The IC generally 

is supported by a Command Staff and a General Staff, with functions 

as depicted in Figure 2-3.

Figure 2-3. ICS Command

The IC is the only ICS position that is always manned. In 

small incidents, the IC may perform all staff functions. 

The Incident Command Post (ICP) is intended to provide a modular 

and standardized on-scene emergency management organization to 

support the IC. Regardless of how large, complex, or multijurisdictional the incident becomes, there is only one ICP per 

incident. 

2.4.2 Area Command 

An Area Command, as depicted in Figure 2-4, is intended to oversee 

multiple single incidents, either geographically dispersed or located 

in near proximity. Area Commands are most effective for multiple 

incidents (e.g., two Hazardous Material (HAZMAT) spills or several 

wildland fires) that will most likely be competing for the same 

resources and capabilities. When incidents are of different types or 

do not have similar resource or capabilities requirements, they will

generally be handled as separate incidents.
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Figure 2-4. Area Command Structure

2.4.3 Unified Command

A Unified Command (UC) is intended to allow multiple agencies to 

work together efficiently without affecting the authority, 

accountability, or responsibility of individual agencies. In a UC, 

agencies work together at a single ICP location to establish a 

common set of objectives and strategies and develop a single 

Incident Action Plan (IAP). Agency ICs exercise authority over the

personnel of their respective agencies and represent their function or 

subject matter in the ICP organization.

Figure 2-5. ICS Unified Command Structure
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ICS concept of ―unified command‖ is distinct from the 

military use of this term. Military forces in a DSCA 

environment will always remain under the operational 

and administrative control of the military chain-ofcommand. Military forces are not directly under the 

command of the IC, but instead, work in a supporting

role.

2.5 The Joint Field Office 

The Joint Field Office (JFO) (see Figure 2-6) is an interagency 

coordination center established to provide a central location for the 

coordination of local, tribal, state, federal, non-governmental, and 

private sector organizations with responsibilities for incident 

response. The JFO does not manage operations; rather, it provides 

support to on-scene efforts and conducts broad support operations. A 

coordinating officer and staff will assist each political level of 

jurisdiction (state, federal, and defense) in a typical incident.

The Federal Coordinating Officer (FCO) is appointed to manage 

federal response support activities for Stafford Act disasters and 

emergencies. The FCO also plays a significant role in managing the 

financial aspects of DSCA.

The State Coordinating Officer (SCO) is appointed by the governor 

to coordinate state response and recovery operations with the federal 

government.

The Defense Coordinating Officer (DCO) is the Title 10 officer who 

serves as the DoD point of contact at the JFO. For more information 

on the duties and responsibilities of the DCO, see Section 3.10.4.
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Figure 2-6. Joint Field Office Structure
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Civilian Liaison Officers (LNOs) serve as representatives and points

of contact for other governmental agencies, NGOs, and private sector 

entities. Military LNOs serve as representatives of their commander. 

For information on the roles and responsibilities of the military LNO, 

see the Liaison Officer Toolkit on the reverse side of this manual.

Joint Information Centers (JICs) are facilities established to 

coordinate all public information activities related to incidents. They 

are often co-located with local, state, or federal Emergency 

Operations Centers (EOCs). JICs provide a location where the 

organizations participating in incident management can work 

together to ensure that timely, accurate, understandable, and 

consistent information is disseminated to the public. The JIC has

representatives from each organization involved in management of 

an incident. ICs and interagency coordinating entities are responsible 

for establishing and overseeing JICs, including processes for

coordinating and clearing public communications.

2.6 Department of Homeland Security Emergency Management

Organizations

2.6.1 Federal Emergency Management Agency

FEMA was established in 1979 by executive order as an independent 

agency and became part of the Department of Homeland Security 

(DHS) in 2003. 

FEMA serves as the executive agent of DHS for emergency 

management and is responsible for responding to, planning for, 

recovering from, and mitigating against disasters. FEMA is 

organized into ten regions (shown in the Figure 2-7). Each region 

serves as the focal point for organizing and coordinating state and 

federal emergency management for incidents within the region.

There is one DCO assigned to each FEMA region, with the 

exception of Region IX where there are an additional three DCOs 

(United States Pacific Command (USPACOM), Commander, Naval 

Forces Marianas (COMNAVMAR), and United States Army Pacific 

(USARPAC)).
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Each of FEMA‘s regional offices maintains a Regional Response 

Coordination Center (RRCC) that expands to become an interagency 

facility in anticipation of a serious incident in the region or 

immediately following an incident. RRCCs coordinate federal 

regional response efforts and maintain connectivity with state EOCs 

and other state offices and agencies. 

Table 2-2. FEMA Regional Headquarters

FEMA Headquarters and Regional Centers

FEMA Headquarters

500 C Street, SW

Washington DC 20472

FEMA Region I

99 High Street, 6

th Floor

Boston, MA 0211

FEMA Region VI

Federal Regional Center 800

North Loop 288

Denton, TX 76209

FEMA Region II

26 Federal Plaza, Room 1307

New York, NY 10278

FEMA Region VII

9221 Ward Parkway, Suite 300

Kansas City, MO 64114-3372

FEMA Region III

615 Chestnut St., 6th Floor

One Independence Mall

Philadelphia, PA 19106-4404

FEMA Region VIII

P O Box 25267

Building 710

Denver Federal Center

Denver, CO 80225-0267

FEMA Region IV

3003 Chamblee-Tucker Road

Atlanta, GA 30341

FEMA Region IX

1111 Broadway, Suite 1200

Oakland, CA 94607

FEMA Region V

536 South Clark Street, 6

th Floor

Chicago, IL 60605

FEMA Region X

130 228th Street, SW

Bothell, WA 98021-8627
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Figure 2-7. FEMA Regions
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2.6.2 United States Coast Guard

The United States Coast Guard is one of the five armed services as 

prescribed in Title 14 United States Code (USC), Section 1 which 

states: 

The Coast Guard as established January 28, 1915, 

shall be a military service and a branch of the 

armed forces of the United States at all times.

Placed under the DHS on February 25, 2003, the Coast Guard 

executes a variety of missions, including Search and Rescue (SAR), 

maritime law enforcement, and defense readiness. 

The Coast Guard has trained a number of JFO support teams to assist 

FEMA during an incident. Coast Guard JFO teams perform the dual 

responsibilities of representing Coast Guard interests during an 

incident while providing support to the overall federal response.

Figure 2-8. United States Coast Guard Districts
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Table 2-3. United States Coast Guard Operations Command

Areas and District Command Centers

Coast Guard Area Commands

Coast Guard Atlantic Area 

431 Crawford Street Federal Bldg. 

Portsmouth, VA 23704-5004

Tel: (757) 398-6000 

Coast Guard Pacific Area 

Coast Guard Island Bldg. 51-6 

Alameda, CA 94501-5100

Tel: (510) 437-3522 

Coast Guard District Commands

First Coast Guard District 

Capt. John Foster Williams 

Bldg. 408, Atlantic Avenue

Boston, MA 02110-3350

Tel: (617) 223-8480

Eleventh Coast Guard District 

Coast Guard Island, Bldg 50-6 

Alameda, CA 94501-5100

Tel: (510) 437-3968 

Seventh Coast Guard District 

Brickell Plaza Federal Bldg. 909 SE 

First Avenue 

Miami, FL 33131-3050

Tel: (305) 415-6670

Fourteenth Coast Guard District 

Prince Kalanianaole Federal Bldg. 

300 Ala Moana Blvd. , 9th Floor 

Honolulu, HI 96850-4982

Tel: (808) 541-2121

Ninth Coast Guard District 

1240 East 9th Street 

Cleveland, OH 44199-2060

Tel: (216) 902-6001

Thirteenth Coast Guard District 

Jackson Federal Bldg 

915 Second Avenue

Seattle, WA 98174-1067

Tel: (206) 220-7237

Eighth Coast Guard 

District Hale Boggs Federal Building 

500 Poydras Street, Suite 1240 

New Orleans, LA 70130-3310

Tel: (504) 671-2174 

Seventeenth Coast Guard District 

P.O. BOX 25517 

Juneau, AK 99802-5517

Tel: (907) 463-2065

Fifth Coast Guard District 

431 Crawford Street Federal Bldg. 

Portsmouth, VA 23704-5004

Tel: (757) 398-6000 
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Emergency Preparedness Liaison Officers (EPLOs). The Coast 

Guard maintains EPLOs similar to DoD EPLOs (see section 3.10.6). 

They are assigned as FEMA Region EPLOs, one per FEMA Region, 

and maintain direct reporting to the Coast Guard District where the 

FEMA Region headquarters are located. They serve the RRCCs, 

JFOs (when established), and state EOCs as consultants. They also 

serve Coast Guard district liaisons for disasters that may involve 

Coast Guard resource support such as SAR, maritime safety and 

security, or HAZMAT response. 

2.7 Emergency Support Functions

Emergency Support Functions (ESFs) are used by the federal 

government and many states as the primary mechanism to organize 

and provide assistance. ESFs are organized into fifteen functional 

areas. They may be selectively activated for both Stafford Act and 

non-Stafford Act incidents and are assigned to support headquarters, 

regional, and field activities. For detailed annexes on each ESF, go to

http://www.fema.gov/emergency/nrf/index.htm

The ESF Coordinator or Primary Agency (PA) is the federal agency 

with significant authorities, roles, resources, or capabilities for a 

particular function within an ESF. The coordinator has ongoing 

responsibilities throughout the preparedness, response, and recovery 

phases of incident management. The ESF PA serves as a federal 

executive agent under the FCO (or Federal Resource Coordinator for 

non-Stafford Act incidents) to accomplish the ESF mission.

Table 2-4. Emergency Support Functions

ESF #1 – Transportation 

ESF Coordinator: Department of Transportation

• Aviation/airspace management and control 

• Transportation safety 

• Restoration/recovery of transportation infrastructure 

• Movement restrictions 

• Damage and impact assessment
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ESF #2 – Communications 

ESF Coordinator: DHS (National Communications System)

• Coordination with telecommunications and information technology 

industries 

• Restoration and repair of telecommunications infrastructure 

• Protection, restoration, and sustainment of national cyber and 

information technology resources 

• Oversight of communications within the federal incident management 

and response structures

ESF #3 – Public Works and Engineering 

ESF Coordinator: DoD (U.S. Army Corps of Engineers)

• Infrastructure protection and emergency repair 

• Infrastructure restoration 

• Engineering services and construction management 

• Emergency contracting support for life-saving and life-sustaining 

services

ESF #4 – Firefighting 

ESF Coordinator: Department of Agriculture (U.S. Forest Service)

• Coordination of federal firefighting activities 

• Support to wildland, rural, and urban firefighting operations

ESF #5 – Emergency Management

ESF Coordinator: DHS (FEMA)

• Coordination of incident management and response efforts 

• Issuance of Mission Assignments 

• Resource and human capital 

• Incident action planning 

• Financial management 

ESF #6 – Mass Care, Emergency Assistance, Housing, and Human 

Services 

ESF Coordinator: DHS (FEMA)

• Mass care 

• Emergency assistance 

• Disaster housing 

• Human services 
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ESF #7 – Logistics Management and Resource Support 

ESF Coordinator: General Services Administration and DHS (FEMA)

• Comprehensive, national incident logistics planning, management, and 

sustainment capability 

• Resource support (facility space, office equipment and supplies, 

contracting services, etc.) 

ESF #8 – Public Health and Medical Services 

ESF Coordinator: Department of Health and Human Services

• Public health 

• Medical

• Mental health services 

• Mass fatality management 

ESF #9 – Search and Rescue 

ESF Coordinator: DHS (FEMA)

• Life-saving assistance 

• Search and rescue operations 

ESF #10 – Oil and Hazardous Materials Response 

ESF Coordinator: Environmental Protection Agency

• Oil and hazardous materials (chemical, biological, radiological, etc.) 

response 

• Environmental short- and long-term cleanup 

• Decontamination

ESF #11 – Agriculture and Natural Resources 

ESF Coordinator: Department of Agriculture

• Nutrition assistance 

• Animal and plant disease and pest response 

• Food safety and security 

• Natural and cultural resources and historic properties protection and 

restoration 

• Safety and well-being of household pets 
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ESF #12 – Energy 

ESF Coordinator: Department of Energy

• Energy infrastructure assessment, repair, and restoration 

• Energy industry utilities coordination 

• Energy forecast

ESF #13 – Public Safety and Security 

ESF Coordinator: Department of Justice

• Facility and resource security 

• Security planning and technical resource assistance 

• Public safety and security support 

• Support to access, traffic, and crowd control 

ESF #14 – Long-Term Community Recovery 

ESF Coordinator: DHS (FEMA)

• Social and economic community impact assessment 

• Long-term community recovery assistance to states, local 

governments, and the private sector 

• Analysis and review of mitigation program implementation 

ESF #15 – External Affairs 

ESF Coordinator: DHS

• Emergency public information and protective action guidance 

• Media and community relations 

• Congressional and international affairs 

• Tribal and insular affairs 

Many states have more than 15 ESFs. This handbook lists 

only the 15 federally-recognized ESFs.
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NOTES
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Civil and Military Responses

CHAPTER 3: CIVIL AND MILITARY RESPONSES

This chapter gives an overview of an incident event timeline from 

the local and first tier response to a Presidential declaration and 

federal response. Included are discussions of the organizations 

involved in responding to an incident and the command 

relationships. Appendix 3.A ―Military Duty Status Comparison‖ 

at the end of the chapter details the differences between State 

Active Duty, Title 32, and Title 10.

3.1 Incident Response Process

The typical incident response begins with first responders at the local 

level. If the response proceeds to the federal level, including a 

Presidential major disaster or emergency declaration, Department of 

Defense (DoD) forces may be deployed to support civilian efforts.

To fully understand the operational environment presented by an 

incident, military leaders should understand the civilian incident 

management process described in Chapter 2.

3.2 Local/First Tier Response

Local response is the first tier in the incident management process, 

and it is local responders who will make the determination for 

expanding response. First responders are local emergency and public 

works personnel who respond to an incident. From this group, 

generally the most experienced responder will take command as the 

Incident Commander (IC). He/she will remain as the IC until 

voluntarily giving up command or being replaced by a more 

qualified individual.

DoD can provide significant response at this level through 

immediate response under imminently serious situations or 

through mutual aid agreements. See Sections 3.6.1 and 3.6.2

for more information.

3.3 County and Regional/Second and Third Tier Response

If first responders are unable to contain an incident, they may ask for 

assistance from the county emergency managers located at the 
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Emergency Operations Center (EOC). The EOC, if activated, 

maintains a current operating picture and communications capability 

with internal and external resources. Thus the EOC is able to 

leverage assets from throughout the county to respond to the 

incident.

The EOC can also support resource management decision making 

when the incident exceeds existing resources and a request for 

additional assistance is required. However, the county or regional 

emergency manager, city mayor, or county executive must validate 

all such requests.

3.4 Tribal Governments

The United States recognizes the right of Native American tribes to 

self-govern. Tribal governments are responsible for coordinating 

resources to address actual or potential incidents. When local 

resources are not adequate, tribal leaders seek assistance from the 

state or federal government. The tribe can elect to deal directly with 

the federal government. Although a state governor must request a 

Presidential declaration under the Stafford Act on behalf of a tribe, 

federal departments or agencies can work directly with the tribe 

within the existing authorities and resources. 

3.5 State/Fourth Tier Response

Every state maintains an EOC that is activated as needed to support 

local EOCs and provide multi-agency coordination. When local 

jurisdictions cannot contain an incident, the governor can declare a 

state of emergency and invoke the state's emergency plan to augment 

individual and public resources as required. Under the Stafford Act, 

states are also responsible for requesting federal emergency 

assistance for community governments within their jurisdiction.

The State Coordinating Officer (SCO) plays a critical role in 

managing state response and recovery operation. As an incident 

escalates, the SCO will work with the Federal Coordinating Officer 

(FCO) to formulate state requirements, including those that are 

beyond state capability. 
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Should requirements exceed state response capabilities, the governor 

can use Emergency Management Assistance Compact (EMAC) 

agreements to request resources from other states. For more 

information on EMAC, see Section 3.8. If requested resources are 

unavailable or requirements exceed capabilities, the governor may 

request federal assistance. When an event causes damage, or is of 

sufficient severity and magnitude to warrant federal disaster 

assistance and such assistance is requested, the President may issue a 

major disaster or emergency declaration. If either declaration is 

issued, assistance is then made available under the Stafford Act. For 

more information on Stafford Act declarations, see Section 3.9.1.

A Presidential Major Disaster Declaration triggers longterm federal recovery programs, some of which are 

matched by state programs and designed to help disaster 

victims, businesses, and public entities. An Emergency 

Declaration is more limited in scope and without the longterm federal recovery programs of a major disaster 

declaration.

3.6 DoD Response 

DoD provides support when requested by civil authorities and 

approved by the Secretary of Defense (SecDef). There are several 

separate authorities whereby DoD resources may be provided 

without SecDef approval. These are Immediate Response Authority 

(IRA), Mutual Aid Agreements/Memoranda of Agreement

(MOAs)/Memoranda of Understanding (MOUs), or in accordance 

with the Chairman of the Joint Chiefs of Staff (CJCS) DSCA 

Execution Order (EXORD). DoD provides DSCA when requested by 

civil authorities and approved by the SecDef. 

3.6.1 Immediate Response Authority 

DoD response at the municipal, county, or tribal level is provided 

under IRA. If requested, any commander can provide resources to:
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• Save lives

• Prevent human suffering

• Mitigate great property damage

A request for assistance from some civil authority (tribal authority,

mayor, chief of police, fire chief, sheriff, chief of emergency 

management, etc.) is required to initiate the IRA. This request may 

initially be made verbally; however, for Mission Assignment (MA) 

tracking and funding purposes, a follow-up in writing is desired.

There is a rule-of-thumb time limit of 72 hours for immediate 

response operations. The 72 hours corresponds with the time limit 

for the response phase (focus is on life-sustaining functions) of a 

Defense Support of Civil Authorities (DSCA) operation. After 72 

hours, the response is generally no longer considered immediate and 

falls into the category of restoration/recovery.

No law enforcement activities are authorized under IRA.

The DSCA EXORD directs commanders to notify Service 

headquarters of IRA operations. Time for notification is Servicespecific, but the Army and Navy have both directed that notification 

take place within 2 hours. It is also recommended that Title 10 

commanders notify the Defense Coordinating Officer (DCO) for 

their Federal Emergency Management Agency (FEMA) region. (See

Annex I for DCO contact information.) The DCO may be able to 

assist in obtaining reimbursement for support provided by local and 

state officials, as well as reimbursement under Stafford or Economy 

Act.

It is important to note that IRA is distinct from authority to provide 

assistance under a mutual aid agreement. IRA is discussed in greater 

detail in Annex A. DSCA Review Criteria are discussed in Annex D.

Stafford Act funding becomes available only when there is 

a Presidential major disaster or emergency declaration,

generally as the result of a governor‘s request for federal 
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assistance; Stafford Act funding is not available for a state 

declaration of emergency. Support under IRA will not be 

delayed or denied based on the inability or unwillingness of 

the requester to make a commitment to reimburse DoD. 

Thus, funding for IRA may become the unit‘s responsibility.

DoD immediate response authority does not apply to National Guard 

forces in State Active Duty (SAD) status. National Guard forces in 

SAD receive their authority to conduct immediate response from 

state law. 

3.6.2 Mutual Aid Agreement 

Mutual aid agreements authorized under DoD Instruction (DoDI) 

6055.06, ―DoD Fire and Emergency Services (F&ES) Program‖, are 

limited to emergency fire, medical, hazardous materials, and rescue 

services. These emergency services are often provided on a 

reimbursable basis by F&ES personnel and Emergency Medical 

Services (EMS) personnel who are collocated in the installation fire 

department. In the absence of an agreement, the same four types of 

assistance may be provided when the commander deems such 

assistance is in the ―best interest of the United States‖ and under 

immediate response authority of DoD Directive (DoDD) 3025.1.

3.6.3 DSCA EXORD

The latest CJCS DSCA EXORD, dated 14 August 2009, sets the 

framework for resources and authorities provided to the supported 

Combatant Commander to conduct DSCA operations for actual or 

potential domestic incidents within the Combatant Commander‘s 

area of responsibility. The authorities granted by the EXORD are 

specified in four distinct categories of authorization:

• Assigned forces

• Pre-identified resources

• Resources for internal use

• Large-scale response categories
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3.7 State Military Response

3.7.1 National Guard

The National Guard is the "first line of military response" to most 

incidents. When the governor of a state mobilizes the National 

Guard, the forces are typically in State Active Duty (SAD) status

under command and control of the governor. SAD forces conduct all 

missions in accordance with the needs of the state and within the 

guidelines of state laws and statutes. 

A governor may request reimbursement from the federal government 

to resource pay and costs associated with state call-up of the National 

Guard to support an emergency. This money may be provided by the 

primary federal agency providing support, such as FEMA. The 

governor may also request federal funding from the SecDef under 

Title 32 United States Code (USC). Regardless of the funding

source, either state or federal, National Guard forces remain under 

command of their respective governor. 

National Guard units may, at the governor‘s discretion and 

within state law, conduct law enforcement missions. While 

in SAD or Title 32 status, they are not subject to the 

restriction of the Posse Comitatus Act. The National Guard, 

however, could be activated by the President in a federal 

military role under Title 10 and therefore should be familiar 

with Posse Comitatus restrictions.

3.7.2 Joint Force Headquarters‒State 

Each state has a Joint Force Headquarters (JFHQ)-State that provides 

command and control of all Army and Air National Guard forces and 

state militia. The JFHQ-State serves as the focal point for all 

National Guard domestic operations within each state. When 

National Guard forces conduct domestic operations support in Title 

32 or SAD, JFHQ-States have the capability to serve as operational 

headquarters.
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3.7.3 Joint Task Force‒State

Each JFHQ-State may stand up one or more Joint Task Forces (JTFs) 

in support of internal and external missions and taskers. JTFs may be 

established in parallel with a Title 10 JTF or in a dual status 

command integrating Title 10 and National Guard forces.

The National Guard Bureau (NGB) Joint Enabling Team 

(JET) is available to provide critical NGB Joint Staff 

expertise to support the state during a crisis event. JETs have 

satellite phones, laptops and printers, cell phones, 

communications gear, and other equipment needed to ensure 

a successful mission without imposing a burden on the state. 

The Team will arrive self-sufficient and self-sustaining. 

JETs may be composed of representatives from J1, J2, J3, J4, 

J6, and Public Affairs, and will include NGB expertise 

requested by the state. In addition, Support Cells to the NGB 

JETs may be attached to provide vital support to the JET and 

the JFHQ-State. Cell members may include administrative 

Non-Commissioned Officers (NCOs), Judge Advocate 

General (JAG) personnel, EMAC experts, and Air 

Coordination Officers. The NGB JET members are expected 

to coordinate their liaison efforts with counterparts of the 

supported JFHQ-State.

3.7.4 State Defense Forces

In addition to the National Guard, twenty-four states authorize a state 

defense force as allowed by Title 32 USC, Section 109. These forces 

may be used to augment the state National Guard and other civil 

authorities in an emergency. State defense forces are strictly state 

entities and are not part of DoD. These voluntary forces are typically 

trained in specialized fields such as law, administration, military 

police, communication, aviation support, search and rescue, logistics, 

medicine, or transportation. State defense force members are 

authorized to wear the military uniform assigned by The Adjutant 
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General (TAG) of the state. They are subject to the state‘s military 

code and during an emergency, receive pay according to state law.

3.8 Emergency Management Assistance Compact 

The EMAC evolved in the aftermath of Hurricane Andrew in 1992 

and is administered by the National Emergency Management 

Association located in Lexington, Kentucky. It is a non-binding,

collaborative arrangement among its members to provide a legal 

framework for states to assist one another in managing a disaster or 

an emergency that has been declared by the governor of the impacted 

state. All states, the District of Columbia, Puerto Rico, Guam, and 

the Virgin Islands are members of EMAC.

Supplemental agreements are executed between states when an event 

occurs. These agreements provide the specific details as to the type 

of support each assisting state will provide and the amount of 

reimbursement the impacted state will pay to each assisting state.

When National Guard forces are needed, National Guard personnel 

sent by one state to another state are in a SAD status unless Title 32 

status is approved by the SecDef. EMAC does not allow the use of 

armed National Guard forces from one state to perform civil 

disturbance or other law enforcement operations in another state. If 

this type of support is required, it must be approved between states in 

a separate mutual aid agreement. 

Many states have historically entered into agreements with each other 

for the use of armed National Guard personnel. Agreements should 

include command relationship, immunity, carrying and loading of 

weapons, law enforcement authority, and training on state Rules on 

the Use of Force (RUF) requirements. These agreements pertain to 

National Guard personnel in a SAD status, and in a Title 32 status 

only if this status is approved by the SecDef. It is critical that 

commanders understand that the EMAC and these separate 

agreements between states do not pertain to DoD personnel, including 

National Guardsmen in Title 10 status.
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During actual or potential widespread disasters that affect multiple 

states, EMACs may become exhausted more quickly, requiring a 

more urgent request for federal response.

The differences between State Active Duty, Title 32, and 

Title 10 are detailed in Appendix 3.A.

3.9 Federal Response

Following a natural disaster, the President may sign a Stafford Act 

declaration directing federal resources (funding, agencies, and 

personnel) to provide assistance to a state. The declaration may be 

requested prior to predicted incidents such as a hurricane, or after 

acute incidents such as an earthquake.

Title 32 forces are assets under the direction of the state 

governor. However, they may be sourced to support federal 

requirements under the Stafford and Economy Acts when 

approved by the Secretary of Defense.

3.9.1 Presidential Disaster Declaration (Civil Authority)

The steps for a Presidential Disaster Declaration are as follows:

Step 1: Federal Emergency Management Agency/federal and state 

representatives complete a Preliminary Damage Assessment (PDA). 

The PDA:

• Documents the impact of the event and estimates initial damage

• Establishes a foundation for the governor to request assistance

• Provides background for FEMA's analysis of the request

Step 2: The governor requests assistance. The governor‘s request, by 

law, must:

• State that the governor has taken appropriate action and directed 

execution of the State Emergency Operations Plan

• Certify that the incident is of such severity and magnitude that 

state and local resources are inadequate

• Include a damage estimate
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• Describe the state and local resources committed to response and 

recovery

• Describe the requested assistance and agree to cost-sharing 

provisions

Figure 3-1. Stafford Act Declaration Process

Step 3: FEMA reviews the request and makes a recommendation.

• Governor‘s request addressed to the President through FEMA 

Regional Administrator

• FEMA Regional Office completed analysis of request and 

recommendation

• FEMA Headquarters review of request to ensure compliance 

with Stafford Act requirements

• FEMA Administrator recommendation of a course of action to 

the President

Step 4: The President makes a Major Disaster or Emergency 

Declaration, if warranted.

• President decides whether to declare that major disaster or 

emergency exists

• If declaration is issued, assistance is made available under the 

Stafford Act

• FCO is designated to oversee disaster operations

In a catastrophic incident, these steps may be expedited.
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3.10 Natural Disaster Response (Federal Military)

DoD will normally respond to a natural disaster when local and state 

resources have been exhausted or the incident/situation is projected 

to overwhelm local, tribal, or state capability and/or resources. DoD 

response to an incident may come through a variety of 

authorizations, including IRA, Mutual Aid Agreement, or SecDef or 

his designee‘s approval of a Request for Assistance (RFA) under the 

Stafford Act or the Economy Act.

3.10.1 Command and Control

Title 10 forces are federal assets under the command of the 

President. Title 10 forces include the Active Army, Navy, Marine 

Corps, Air Force, and the Reserves of each, as well as National 

Guard units ordered to federal active duty by the President or Service 

Secretary.

Combatant Commands serve as DoD‘s Regional Planning Agents. 

The Service components of Combatant Commands may serve as the 

Joint Force Air Component Commander (JFACC) or Joint Force 

Land Component Commander (JFLCC) in a DSCA environment.

3.10.2 United States Northern Command

In the United States Northern Command (USNORTHCOM) Area of 

Responsibility (AOR), the DCO is under command and control of 

United States Army North (USARNORTH)/JFLCC. The initial Joint 

Force Commander (JFC) staff may consist of the DCO, Defense 

Coordinating Element (DCE), allocated Service Emergency 

Preparedness Liaison Officers (EPLOs), and a USARNORTH 

Augmentation Team.

To facilitate emergency responses, 1

st Air Force (Air Forces 

Northern (AFNORTH)) typically acts as USNORTHCOM‘s JFACC. 

In support of AFNORTH, the Air Force National Security 

Emergency Preparedness (AFNSEP) Directorate:

• Advises military and civilian leaders

• Responds to Requests for Information (RFIs) and Requests for 

Assistance (RFAs)
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• Provides expertise on Air Force capabilities

• Coordinates Base Support Installations (BSIs) and FEMA 

Mobilization Centers

• Facilitates/coordinates response efforts/execution

• Resolves problems

• Reports/provides feedback to leadership

• Provides instruction on DSCA and civil support

• Conducts annual visitation at all Air Force installations to 

train/prepare all for potential involvement/engagement with civil 

authorities

• Visits State Emergency Management Agencies (SEMAs) to 

coordinate RFAs

• Participates in exercises at all levels with military and civil 

authorities to enhance readiness

3.10.3 United States Pacific Command

Joint Task Force Homeland Defense (JTF-HD) is the DoD‘s 

executive agent for United States Pacific Command (USPACOM) to 

synchronize incident management in support of civilian authorities 

Figure 3-2. USPACOM JTF-HD
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within the Joint Operations Area (JOA) that encompasses Hawaii, 

Guam, the Commonwealth of the Northern Mariana Islands, and 

American Samoa. Command and coordination relationships of JTFHD are shown in Figure 3-2.

3.10.4 Defense Coordinating Officer 

The DCO, a Title 10 active duty officer, is assigned to each FEMA 

region and may work at the Regional Response Coordination Center 

(RRCC), at the FEMA regional office, or may pre-deploy to an 

incident command site. A DCO will generally be involved in DoD‘s 

response to DSCA and may become the JFC with command and 

control of Title 10 forces. If federal military forces deploy, the DCO 

will normally deploy to the Joint Field Office (JFO) location. The 

DCO coordinates DoD support to the Primary Agency (PA).

Figure 3-3. Typical DCE Organization

Specific responsibilities of the DCO (subject to modification based 

on the situation) include:

• Subject matter expertise for all state and federal emergency 

response plans 

• Coordinating with FEMA staff, state emergency responders, 

TAGs, and JFHQ-State staff
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• Coordinating with the FCO and PAs for Emergency Support 

Functions (ESFs) 

• Assigning military liaisons as appropriate

• Coordinating with all military installations regarding BSI

operations 

3.10.5 Defense Coordinating Element 

The DCO has a DCE of ten permanent ―core‖ staff and military 

Liaison Officers to facilitate coordination and support to activated 

ESFs. 

DCO/DCE responsibilities include:

• Representing DoD in the disaster area 

• Providing liaison to state, local, and other federal agencies 

• Reviewing/recommending validation of RFAs/MAs

• Recommending the best military resource for the mission 

• Providing support of deployed DoD forces

Figure 3-4. Sample Augmented DCE Structure
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3.10.6 Emergency Preparedness Liaison Officer 

Emergency Preparedness Liaison Officers are Service reservists

performing duties under DoDD 3025.16. When sourced and 

allocated via the Global Force Management process, EPLOs are 

under Operational Control (OPCON) of the Service Component 

Commander, allocated to Commander USNORTHCOM or 

Commander USPACOM, and Tactical Control (TACON) to the 

DCO.

Responsibilities of EPLOs include the following:

1. Establish initial communication and coordination links between 

DoD and civil authorities at the regional, state, and local levels.

2. Assist DoD forces in establishing connections with appropriate 

local civil authorities.

3. Conduct pre-emergency coordination with military and civilian 

leaders within their region or state.

4. Maintain effective communication between the DoD components 

and other state and/or federal governmental agencies.

5. Promote mutual understanding among various organizations 

tasked with providing support in civil emergency situations.

6. Coordinate and establish relationships between the National 

Guard and DoD federal forces.

7. Represents DoD federal forces in coordinating with civil 

authorities at the state and regional level.

3.10.7 Regional EPLO 

Regional EPLOs (REPLOs) are Title 10 Service Reserve personnel 

assigned to the FEMA regions.

3.10.8 State EPLO 

State EPLOs (SEPLOs) are Title 10 Reserve personnel who 

perform duty in the state EOC. As subject matter experts in their 

states, they serve as DoD liaisons for DSCA to state and federal 

agencies and maintain situational awareness within the state. On a 

daily basis, they build relationships to facilitate mission 

accomplishment.
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3.10.9 Other Service EPLOs 

Every Service has EPLOs who, when sourced and allocated via the 

Global Force Management process, perform the same duties for their 

respective Services as do Army EPLOs. The Navy refers to their 

EPLOs as NEPLOs. The Marine Corps and the Air Force Reserve 

personnel can serve either as an EPLO or Service Liaison Officer 

(LNO). Unlike their Army counterparts, when serving as EPLOs, 

they are not assigned to a specific FEMA region and will deploy 

where directed. EPLOs work in coordination with the DCE and are 

TACON to the DCO.

United States Coast Guard EPLOs are assigned in accordance with

Commandant Instruction (COMDTINST) 3025.1 and are described 

in Section 2.6.2.

3.10.10 Request for Assistance/Mission Assignment Process

FEMA coordinates the federal response to a disaster and will issue

an RFA/MA to other federal agencies. RFAs/MAs can also be 

initiated by states and/or agencies through the Executive Directorate 

at the Pentagon.

Generally, DSCA requests originating at the JFO are coordinated 

with and processed through the DCO. The DCO coordinates with 

state emergency managers, the state National Guard, and FEMA to 

assist in the preparation and review of suitability for DoD to perform 

an RFA/MA.

The DCO then forwards suitable RFAs/MAs (see Annex D for 

DSCA MA Review Criteria) to USNORTHCOM or USPACOM for 

validation. The Combatant Commander may approve the RFA/MA 

using assigned forces or with the authorities provided in the CJCS 

Standing DSCA EXORD. If the RFA/MA cannot be satisfied by the 

Combatant Command, it can be submitted to the Joint Director of 

Military Support (JDOMS) for staffing through the Request for 

Forces (RFF) process and SecDef approval.

Once the SecDef approves the MA and signs an EXORD or 

Deployment Order (DEPORD), the JDOMS passes the order to one 
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of the three Joint Force providers: (1) Joint Forces Command 

(JFCOM) for sourcing conventional forces; (2) Special Operations 

Command (SOCOM) for sourcing special operations forces; and (3) 

Transportation Command (TRANSCOM) for sourcing mobility 

forces. When sourcing conventional forces, JFCOM subsequently 

tasks Component Commands (Army, Navy Air Force, Marine Corps) 

to resource the mission. 

On order, the DCO may be called upon to execute OPCON or 

TACON of Title 10 forces designated to support the incident if the 

incident has not escalated to the point where additional command 

structure is necessary for sourcing and tasking. 

A detailed graphical representation of the RFA/MA process is 

presented in Annex E.

Twenty-four Pre-Scripted Mission Assignments (PSMAs) were 

developed by FEMA in coordination with DoD to facilitate 

development and processing of MAs. Additional information and a 

list of PSMAs can be found in Annex F.

Existence of a PSMA does not constitute pre-approval.

3.10.11 Title 10 Joint Task Force 

Based on the complexity and type of incident and the anticipated 

level of DoD resources involved, DoD may elect to designate a JTF 

to command all Title 10 military forces in support of the incident. 

Close coordination between federal military other DoD entities such 

as the United States Army Corps of Engineers (USACE) and 

National Guard forces is critical.

USNORTHCOM‘s standing Joint Task Forces are:

• JTF-Alaska, Elmendorf Air Force Base, Alaska

• JTF-Civil Support, Fort Monroe, Virginia

• JTF-North, Biggs Army Airfield, Fort Bliss, Texas
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3.10.12 Title 10 Military Forces

Military units in a Title 10 status are under federal command and 

control and are usually OPCON to USNORTHCOM/USPACOM. 

Upon arrival, units are TACON to the JTF or JFC. Once deployed, 

they receive MAs from the JTF Commander or JFC. 

Unit commanders are normally Direct Liaison Authorized 

(DIRLAUTH) by the Combatant Command. As such, they should 

contact the JFC or DCO as soon as possible after receipt of DSCA 

DEPORDs to obtain mission specifics, to process RFI, and to 

facilitate effective mission planning. In the USPACOM AOR, forces 

will report to the JTF-HD.

3.10.13 Additional Considerations

3.10.13.1 Dual Status Command

Dual status command allows a designated National Guard or federal 

military officer to command military personnel serving in a SAD, 

Title 32, or Title 10 status. Approval of a dual status commander 

requires the consent of the governor and approval of the President.

The dual status commander receives orders from both the federal 

chain-of-command (President) and the state chain-of-command 

(governor). Dual status is most frequently used during National 

Special Security Events (NSSE). 

An NSSE is a major event that is considered to be nationally 

significant. It may be designated by the President or his 

representative, the Secretary of Department of Homeland 

Security (DHS). Such events include presidential 

inaugurations, presidential nominating conventions, major 

sports events, and major international meetings. NSSE 

designation factors include anticipated attendance by U.S. 

officials and foreign dignitaries,size of the event, and 

significance of the event.
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3.10.13.2 Release from Mission Assignment and Redeployment

As the incident recovery process begins, military assets will be 

released once MAs are completed. This decision is made in 

coordination with the DCO/JFC for Title 10 units, or JFHQState/JTF-State for Title 32 units. Planning factors for redeployment 

are found in Chapter 5.

3.10.14 Other Entities Operating in a DSCA Environment

Any of the following agencies may also be operating in the DSCA 

area of responsibility.

3.10.14.1 United States Army Corps of Engineers

The United States Army Corps of Engineers has authority for flood 

control and coastal emergencies under its Title 33 role and is the PA

supporting ESF #3, ―Public Works and Engineering.‖ USACE is 

responsible for providing infrastructure protection and emergency 

repair support to assist in needs related to reconnaissance and 

emergency clearance of debris from damaged areas (route clearance). 

USACE is discussed in greater detail in Chapter 3 of the Liaison 

Officer Toolkit.

3.10.14.2 Defense Logistics Agency

The Defense Logistics Agency (DLA) is the largest logistics support 

agency of DoD. DLA provides worldwide logistics support to the 

military Services, as well as several civilian agencies and foreign 

countries.

3.10.14.3 National Geospatial Intelligence Agency

The National Geospatial Intelligence Agency is the support agency 

of DoD in the areas of imagery, intelligence, and geospatial 

information. The United States Government relies on this agency for 

coherent management of the disciplines of imagery and mapping.

3.10.14.4 Civil Air Patrol

Civil Air Patrol (CAP), tasked by the United States Air Force 

(USAF) in an Air Force Auxiliary (AFAUX) role, can perform 
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reconnaissance, emergency services, homeland security and disaster 

relief missions. CAP is discussed in greater detail in Chapter 4 of the 

Liaison Officer Toolkit.

3.10.14.5 Non-Governmental Organizations

Non-Governmental Organizations (NGOs) are officially designated 

as support elements to national response capabilities. The American 

Red Cross (ARC) is a supporting agency to mass care functions of 

ESF #6, ―Mass Care, Emergency Assistance, Housing, and Human 

Services.‖ While it does not direct other NGOs, ARC takes the lead 

in integrating efforts of national NGOs that provide mass care 

services during response operations. 

3.10.14.6 National Voluntary Organizations Active in Disaster

National Voluntary Organizations Active in Disaster (NVOAD) is a 

consortium of approximately 50 national organizations and 55 state 

and territory equivalents. Through NVOAD, organizations share 

knowledge and resources to help disaster survivors and their 

communities. NVOAD typically sends representatives to the 

DHS/FEMA National Response Coordination Center (NRCC) to 

represent the voluntary organizations and assist in response 

coordination.
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Appendix 3.A: Military Duty Status Comparison

Category State Active Duty Title 32 Title 10

Command and 

Control Governor Governor President

Who performs 

duty

Federally organized

National Guard

Organized National 

Guard in service of 

U.S.11

AC, RC6and National 

Guard of U.S.11

Where duty 

performed

Home state or IAW 

EMAC United States Worldwide

Mission types IAW state law

Inactive Duty 

Training (IDT), 

Annual Training (AT), 

State Active Guard 

and Reserve (AGR) &

other federally 

authorized

Overseas Duty for 

Training (ODT), 

Active Duty for 

Training (ADT), AGR 

& as assigned, 

subject to PCA

Pay In accordance with 

(IAW) state law

Federal pay and

allowances

Federal pay and

allowances

Federal 

reimbursement

IAW Stafford Act9or 

Cooperative 

Agreement10

N/A – personnel cost 

paid by federal 

funds

N/A personnel cost 

paid by federal 

funds

Tort Immunity IAW state law FTCA4FTCA

PCA1application No No Yes

USERRA2No, IAW state law Yes Yes

SSCRA3No, IAW state law No Yes

Discipline State military code State military code UCMJ5

Medical IAW state law Federal Federal

Disability IAW state law Federal Federal

Involuntary order 

to duty IAW state law Yes7

Yes8

Voluntary order to 

duty IAW state law Yes Yes

1. Posse Comitatus Act (18 United States Code (USC) § 1385) 

2. Uniformed Services Employment and Reemployment Rights Act (38 

USC §§ 4301-4333) 

3. Soldiers and Sailors Civil Relief Act (50 USC App. §§ 500-548, 560-

591) 

4. Federal Tort Claims Act (28 USC §§ 2671-2680) 

5. Uniform Code of Military Justice (10 USC §§ 800-946) 

6. Active Component, Reserve Component
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7. 32 USC §502(f)(1)). 

Provisions of 32 USC § 502(f):

(1) Under regulations to be prescribed by the Secretary of the Army or 

Secretary of the Air Force, as the case may be, a member of the 

National Guard may— (A) without his consent, but with the pay and 

allowances provided by law; or (B) with his consent, either with or 

without pay and allowances; be ordered to perform training or other 

duty in addition to that prescribed under subsection (a). 

(2) The training or duty ordered to be performed under paragraph (1) 

may include the following: (A) Support of operations or missions 

undertaken by the member‘s unit at the request of the President or 

Secretary of Defense. (B) Support of training operations and training 

missions assigned in whole or in part to the National Guard by the 

Secretary concerned, but only to the extent that such training missions 

and training operations— (i) are performed in the United States or the 

Commonwealth of Puerto Rico or possessions of the United States; 

and (ii) are only to instruct active duty military, foreign military 

(under the same authorities and restrictions applicable to active duty 

troops), Department of Defense contractor personnel, or Department 

of Defense civilian employees. 

(3) Duty without pay shall be considered for all purposes as if it were 

duty with pay.

8. Under Presidential Reserve Call-up (10 USC § 12304); partial 

mobilization (10 USC § 12302); or full mobilization (10 USC § 12301(a)) 

9. Stafford Act (42 USC § 5121) for disaster-related activities 

10. Cooperative agreement if to perform an authorized National Guard 

function 

11. 10 USC §§ 3062(c) and 8062(c) 
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CHAPTER 4: PLANNING IN A DSCA ENVIRONMENT

The Joint Operation Planning Process (JOPP) supports planning at 

all levels for missions across the full range of military operations. 

It is the process described in Chapter 3 of Joint Publication 

(JP) 5-0 Joint Operation Planning and will be used as the example 

for planning in this handbook. For Service-specific processes, see:

• ArmyChapter 3 of Field Manual (FM) 5-0

• NavyChapter 2 of Naval Warfare Publication (NWP) 5-01 

• Marine CorpsChapter 2 of Marine Corps Warfighting 

Publication (MCWP) 5-1

• Air ForceAir Force Instruction (AFI) 10-401

• Coast Guard—Contingency Preparedness Planning Manual, 

Volume 1, Commandant Instruction M3010.11 Series

4.1 Joint Operation Planning Process Overview

The JOPP is designed to facilitate interaction between the 

commander, staff, and subordinate headquarters throughout 

planning. JOPP helps commanders and their staffs organize planning 

activities, share a common understanding of the mission and 

commander‘s intent, and develop effective plans and orders. Using a 

complete planning process instead of an abbreviated one results in a 

detailed Operation Plan (OPLAN) with optimal integration, 

coordination, and synchronization, and with minimal risk of 

overlooking a critical planning aspect of an operation. 

4.2 Mission Analysis

The key inputs to mission analysis are the higher headquarters 

planning directive, strategic guidance, the Joint Intelligence 

Preparation of the Operational Environment (JIPOE), and initial staff 

estimates. The primary products of mission analysis are a restated 

mission statement and commander‘s initial intent statement, 

Commander‘s Critical Information Requirements (CCIR), and 

planning guidance. In preparation for the mission analysis process, 

staff officers should develop a generic list of requirements within 

their functional areas for particular types of missions.
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Figure 4-1. Sample JOPP Inputs and Outputs
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In the context of Defense Support of Civil Authorities (DSCA), 

generic requirements for each primary and special staff officer are 

included in Chapter 5 of this handbook, as well as hazard-specific 

requirements in Chapters 7 through 11. The steps to mission analysis 

are listed in Table 4-1 as a quick reference.

Table 4-1. Steps in Mission Analysis

Step 1.

Determine known facts, current status, or conditions. This 

may involve watching the local news, contacting higher 

headquarters for aerial photography, talking to Defense 

Coordinating Officer (DCO)/Joint Force Commander (JFC) or 

Joint Force Headquarters (JFHQ) personnel in the local area 

prior to deployment, or conducting personnel and terrain 

analysis research on the internet.

Step 2.

Analyze the higher commander’s mission and intent. 

Identify Department of Defense (DoD) strategic objectives, as 

well as Department of Homeland Security (DHS)/Federal 

Emergency Management Agency (FEMA) goals and objectives 

and those of local officials. Your mission is to support civil 

authorities. Failing to understand their objectives can impact 

unit effectiveness and mission accomplishment.

Step 3.

Determine own specified, implied, and essential tasks. 

Except in the case of Immediate Response Authority (IRA) and 

Mutual Aid Agreements, tactical level commanders should not 

perform DSCA missions without the approval and/or direction 

of an authorized tasking authority.

Step 4.

Determine operational limitations. It is essential that 

commanders know the legal limitations of conducting certain 

operations in a DSCA environment, e.g. weapons carrying, 

arming and usage. Refer to Annex A for legal limitations.

Step 5.

Develop assumptions. What conditions can you expect on the 

ground? The initial incident may morph over time. What events 

do you need to expect to occur next?

Step 6.

Determine own military end state, objectives, and initial 

effects. These should be tied to both the strategic DoD 

objectives and the civil authority goals and objectives.
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Step 7.

Determine center(s) of gravity and critical factors. Where 

will your unit be located and who else is operating in the same 

area of responsibility? What additional post-incident effects 

can you expect to have to deal with, and where might they be 

most likely to occur?

Step 8.

Determine initial Commander’s Critical Information 

Requirements. A draft listing of DSCA-related CCIRs is 

found in Section 5.2.2.

Step 9.

Review strategic communication guidance. Ensure Public 

Affairs Officer (PAO) coordinates with civil authority Public 

Information Officer (PIO) for guidance and ensure every 

Soldier, Sailor, Airman and Marine is briefed on media effects.

Step 10.

Conduct initial force structure analysis. How will your 

personnel be allocated to complete tasks associated with your 

Mission Assignments?

Step 11.

Conduct initial risk assessment. Composite Risk 

Management or Operational Risk Management is the most 

important factor in maintaining the welfare of your personnel.

Step 12. Develop mission statement. 

Step 13. Develop mission analysis brief. 

Step 14. Prepare initial staff estimates. 

Step 15. Publish commander’s planning guidance and initial intent. 

The FEMA Comprehensive Preparedness Guide 101 

provides general guidelines on developing Emergency 

Operations Plans (EOPs). The Guide is designed to help both 

novice and experienced emergency planners in navigating

the planning process. 
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CHAPTER 5: ALL-HAZARDS PLANNING FACTORS

This chapter contains operational planning factors for Defense 

Support of Civil Authorities (DSCA), organized by staff element

and built around a four-phase approach. When preparing to 

respond to an All-Hazards Event, staff members are encouraged to 

read the entire chapter but, at a minimum, should read their 

section.

Tactical Level Commander

Executive Officer

Personnel/Human Resources

Intelligence

Plans and Operations

Logistics and Resource Management

Communications

Public Affairs

Staff Judge Advocate

Chaplain

Medical Officer/Surgeon

Aviation Officer

Safety Officer

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Staff sections are also indicated in footers for this chapter.

5.1 Operational Phases

The United States Northern Command (USNORTHCOM) Concept 

Plan (CONPLAN) 3501-08, Defense Support of Civil Authorities, 

contains a six-phase plan for DSCA operations. However, for 

simplicity in this handbook, the six phases in the USNORTHCOM 

CONPLAN have been condensed into four phases and incorporate 

tasks completed by all military components. For information on the 

six phases of the NORTHCOM CONPLAN, see Appendix 5.A.

Phase 1, Assessment and Preparation/Mobilization (parallels 

USNORTHCOM Phases 0 and I). Phase 1 begins with all preincident actions and continues through post-notification predeployment actions. Phase I ends at deployment.

Phase 2, Deployment (parallels USNORTHCOM Phase II). Phase 

2 begins with deployment of forces and ends upon arrival with 

commencement of operations.
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Phase 3, Support of Civil Authorities (parallels USNORTHCOM

Phases III and IV). Phase 3 begins upon arrival at incident area

with the first operational actions. It ends when there are no future 

mission requirements and current operations begin to draw down.

Phase 4, Re-deployment/Demobilization (parallels 

USNORTHCOM Phase V). Phase 4 begins when operations start to 

draw down. It ends with the successful and complete transition to

local command and release of personnel at home station.

Throughout this handbook, tactical staff officers and staff 

sections will be referred to by the designation of A/N/S (A= 

Air Force Staff, N=Navy Staff, S=Army or Marine Corps 

Staff).

The placing of a specific consideration under a particular 

staff section below is for planning purposes only. 

Commanders are always free to assign tasks to their staffs as 

they deem appropriate.
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Commander

5.2 Tactical Level Commander

Civilian counterpart(s): Incident Commander (IC) or member of 

Unified Command 

Command and Control (C2) in DSCA requires a change of mindset. 

In DSCA operations, unless the Department of Defense (DoD) is the 

Primary Agency (PA) for the incident (through Emergency Support 

Function (ESF) #3, ―Public Works and Engineering)‖ the military is 

not in charge of the incident. Typically DoD is in a direct support 

role. With the variety of organizations involved in DSCA,

commanders should expect some level of chaos. 

Civilian authorities are not familiar with military vernacular and do 

not know rank, limits of authority, or the unit‘s capabilities. 

However, they are professionals at civil incident management.

In DSCA operations, the guiding principles are coordination and 

cooperation.

5.2.1 Commander Phase 1 - Assessment and Preparation/

Mobilization

 Title 10 units/forces must coordinate with Defense Coordinating 

Officer (DCO) or appropriate Joint Force Commander 

immediately upon receipt of mission.

 Title 32 units/forces must coordinate with Joint Task Force-State 

(JTF-State)/Joint Force Headquarters State (JFHQ-State) 

immediately upon receipt of mission.

 Request Staff Judge Advocate (SJA) to provide detailed briefing 

on specific DSCA legal constraints and how they will affect unit 

operations.

Unless otherwise directed by the Secretary of Defense 

(SecDef), it is DoD policy that only Service mortuary affairs 

personnel handle (touch) human remains. It is highly 

recommended that commanders and staff read Chapter 8, 

―Mortuary Affairs‖ in the Liaison Officer Toolkit.
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 Request SJA to provide a briefing to personnel on the Standing 

Rules for the Use of Force (SRUF) and issue an SRUF card to 

each.

 Ensure A/N/S-2 becomes familiar with DoD Regulation 

5240.1-R, ―Procedures Governing the Activities of DoD 

Intelligence Components That Affect United States Persons,‖ 

regarding the prohibition of intelligence collection on American 

citizens and disposal of sensitive information.

 Identify and contact civilian counterparts as necessary. 

 Determine C2 relationships. For whom are you working? To 

whom are you reporting?

 Be prepared to coordinate with all agencies, organizations, or 

individuals that can help support the mission to reduce loss of 

life, limb, and property: 

o Local, tribal, state, federal agencies and organizations 

o Non-Governmental Organizations (NGOs)

o Volunteers

 Establish communication protocols. Use military assets for 

internal communications and develop specific plans for each 

unique civilian communications situation.

 Establish battle rhythm; however, acknowledge that your battle 

rhythm is driven by higher command and IC timelines.

 Establish logistics plan.

 Determine advance party requirements. 

 Establish methods for and begin tracking of daily costs and 

Missions Assignments (MAs).

 Brief unit personnel on DSCA-unique legal impacts. 

 Plan for media interactions.

Examples of Command Messages and Straight Talk 

Messages may be found in Annex G.

 Remind unit personnel that they represent DoD both in and out 

of uniform. Observed behavior, good and bad, will have a 

strategic impact.
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 Determine Liaison Officer (LNO) requirements in coordination 

with the DCO or JFHQ.

LNOs are different from Emergency Support Liaison 

Officers (EPLOs). EPLOs are Service and other DoD 

personnel who coordinate military assistance to other federal 

agencies and state governments. LNOs represent their 

command.

 Ensure subordinate commanders and staff personnel begin to 

track all reimbursable costs and MAs (see Resource Tracking 

List in Annex J, ―Reports‖.)

 Complete mission assurance requirements (steps to safeguard 

personnel and equipment (aircraft, boats, high dollar items).

o Achieve and maintain 100% personnel accountability.

o Determine force protection requirements and establish Force 

Protection Condition (FPCON) levels and building/facilities 

security requirements, etc.

 Determine disengagement criteria if in an Immediate Response 

Authority (IRA) situation. How will you disengage and 

transition mission to civil authorities? (For information on 

IRA, see Section 3.6.1 and Annex A.)

Commander’s IRA Checklist

1. Begin to capture costs immediately.

2. Inform higher headquarters immediately.

3. Have an exit strategy before committing forces to IRA.

4. Inform local authorities that you need a request for IRA in 

writing as soon as possible.

5. Inform local authorities they must have a strategy to reimburse 

the U.S. Government, if required, for all costs associated with 

IRA support. Costs may be extensive.

6. Review the legal considerations for undertaking a DSCA 

mission. Refer to Annex D.
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 Select LNOs and train them. (See Liaison Officer Toolkit on the 

flipside of this handbook.) ―If sending your LNO doesn‘t hurt, 

you‘re sending the wrong person‖—MAJ Russell Bossard, Joint 

Operations Center (JOC) Officer in Charge (OIC), Iowa National 

Guard.

 Ensure staff elements understand Incident Command System 

(ICS) processes described in Chapter 2.

 Train personnel in National Incident Management System 

(NIMS) and ICS procedures.

5.2.2 Commander Phase 2 - Deployment Phase

 Begin formally tracking operational mission costs.

 Determine information requirements: Commander‘s Critical 

Information Requirements (CCIR)—Priority Information 

Requirements (PIR), and Friendly Force Information 

Requirements (FFIR—and Information Requirements (IR) (e.g., 

Essential Elements of Friendly Information (EEFI)).

PIR in a DSCA environment:

1. Are there indications of a terrorist attack in the region?

2. Are there environmental elements that will impact the region?

3. What is the status of key infrastructure in the region or state?

4. Are there major deployments which will affect the National 

Guard‘s ability to respond?

5. What shortfalls does the state have that the federal government 

might be asked to provide?

6. When will the Federal Emergency Management Agency (FEMA)

deploy advance teams?

7. Where is the active Joint Field Office (JFO)?

8. Has the Regional Response Coordination Center (RRCC) 

activated to level one?

9. Has a state Emergency Operations Center (EOC) activated to 

highest level?

10. What guidance or orders have been issued by higher 

headquarters?

11. Where is the commander?

What is the unified command structure and where is it located?
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FFIR provide information about the status of agencies, units, and 

installations conducting civil support under direction of state and 

federal coordinating officers. 

Included are:

• Loss of life or serious injury of team personnel

• Death or serious illness of an immediate family member

• Any accident in which a work day is lost

• Request for support made by a federal agency (e.g., MA,

Request for Assistance (RFA))

• Non-mission capable vehicle

• Non-mission capable radio

• Deployment of an EPLO

• Location and status of attached, Operational Control (OPCON) or 

Tactical Control (TACON) units

• Operations Security (OPSEC) or Communications Security 

(COMSEC) violation

• Loss/compromise of classified information or equipment

• Deployment of team members

EEFI include:

• General Officer or Senior Executive Service travel plans in the 

region

• Planned deployment or deployment of military forces 

• Itinerary of Distinguished Visitors (DVs) 

• Building access codes 

• Military posture of Base Support Installation (BSI) and Incident 

Support Base (ISB)

Note: EEFI require modification during a DSCA operation. 

Environmental information (condition of the physical environment, 

ongoing environmental hazards, and status of key infrastructure) 

may also impact operations.

 Determine what equipment and personnel are needed. Ensure 

that personnel are qualified operators for equipment involved.

 Review medical considerations found in Section 5.12.
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 Send advance party; establish points of contact.

 Plan for housing, feeding, and protecting your unit.

 Determine source of utilities (water, power, shower, laundry).

Base Support Installation

The BSI is normally a DoD installation with an airfield and suitable 

support facilities. The BSI is the domestic equivalent to a theater base 

in other areas of responsibility. It may be the Aerial Port of 

Embarkation (APOE) and may become the Joint Staging, Reception, 

Onward movement, and Integration (JRSOI) facility for the joint 

forces. In addition to JRSOI, the BSI may also become a training 

facility and principal supporting base for federal relief efforts. The 

USNORTHCOM or United States Pacific Command (USPACOM) 

Commander designates the BSI after receiving concurrence of the 

owning Military Department Secretary. Not all states have a DoD 

facility that is capable of handling military or heavy commercial 

aircraft. Units need to be prepared to conduct JRSOI from a civilian 

Aerial Port of Debarkation (APOD) and conduct further movement to 

a BSI or incident area.

Joint Reception, Staging, Onward movement, and Integration

JRSOI is the process whereby arriving personnel, equipment, and 

materiel transition into forces capable of meeting operating 

requirements. During JRSOI, areas of responsibilities are delineated, 

communications frequencies are deconflicted, and incoming 

personnel are fed and housed prior to departure to forward areas. 

JRSOI is vital to the success of the mission. The reception process 

varies by mission but always has accountability for personnel and 

equipment as key concerns. Various briefings such as a local area 

orientation, safety, communications (frequencies/call 

signs/cellular/automated systems, etc.), logistics support and account 

opening, and chain-of-command overview may be provided.
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 Establish small deployable communications packages ahead of 

larger deployable command posts for immediate feedback of 

requirements.

 Conduct risk assessment and plan risk management.

 Brief personnel to establish a new mind set. This is not a normal 

military operation. It is not a combat environment. Personnel 

cannot break things or cause unintended casualties. The mission 

is a deliberate process to assist American civilians who need 

your help.

Use of private property verses public property

Commanders cannot assume all private or public property 

can be used for military purposes. Just because a house is 

damaged, doesn‘t mean you can occupy it, write on the 

walls, or further damage it. In a DSCA environment, just as

mom used to say, ―You need to leave it (environment/area) 

better than you found it.‖ Commanders, your unit will leave 

a lasting impression. It‘s up to you whether it is a good or 

bad impression.

5.2.3 Commander Phase 3 - Support of Civil Authorities

 Issue Operation Order (OPORD) with Fragmentary Order 

(FRAGO).

 Execute internal communications plan.

 Execute external communications (voice, data, and video) with

appropriate emergency operations centers.

 Plan for visitors and VIPs.

Dealing with Visitors

The Primary Agency for the incident will establish the policy and 

procedures for handling visitors. This is often, though not always, 

conducted in cooperation with local and state officials. Military forces 

supporting an incident may be requested to provide personnel to assist 

with handling visitors. In no case will the military establish a formal 

visitor‘s bureau without specific direction from the Primary Agency.
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 Establish reach-back capability.

 Execute logistics plan/activities. 

 Conduct synchronization meetings between all primary 

agencies/entities that have impact.

 Title10 commanders should have the DCO/Defense 

Coordinating Element (DCE) brief the commander and staff 

upon arrival on the current situation. Brief the DCO on unit 

capabilities and limitations to manage expectations.

 Provide personnel to augment county Office of Emergency 

Management if necessary.

 Determine how accidents and incidents will be handled for both 

military and civilian personnel.

5.2.4 Commander Phase 4 - Re-deployment/Demobilization

 Conduct equipment inventories, inspections, and initiate 

adjustment documents.

 Complete all investigations, particularly those concerning 

injuries (Line of Duty investigations), vehicle accidents, and lost 

or damaged equipment.

 In coordination with DCE or National Guard Bureau as 

appropriate, compile all data from support operations, including 

but not limited to total man-hours used, number and type of 

equipment used, fuel usage, maintenance performed, and 

equipment lost, damaged or destroyed.

 Title 10 forces need to close out with the DCO and IC before 

departing the Area of Operations (AO). Transition the mission to 

someone else and let the IC know who is picking up mission 

support.

 Consolidate costs associated with execution of DSCA MAs and 

submit request for reimbursement to appropriate headquarters.

 Prepare draft After Action Report (AAR) and lessons learned.
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Executive Officer (XO)

5.3 Executive Officer 

Civilian counterpart(s): Deputy Incident Commander

The primary responsibility of the Executive Officer (XO) (may also 

be called Chief of Staff or Deputy Commander) is to synchronize 

and coordinate DSCA efforts across all staff sections. This is 

especially critical during the deployment and DSCA operations

phases when synchronization and integration of resources are crucial 

and unit assets may be widely dispersed. 

Frequently in a DSCA environment, units must conduct split-base 

operations. When this occurs, the XO needs to be prepared to 

perform duties as the commander in addition to supervising staff 

activities. 

In the absence of assigned special staff, the XO must ensure special 

staff duties (described in Sections 5.9 through 5.14 of this chapter)

are performed, either through assigning additional duties or by 

requesting support from higher.

If unit personnel live in the area affected by the disaster, 

ensure the staff coordinates shelter support and determines 

availability of other support services (commissary, post 

exchange, daycare, etc.). Accountability of personnel may 

become very difficult in this situation.

Other important duties of the XO are: 

• Supervising and coordinating staff operations in a DSCA 

environment

• Supervising the analysis and assessment of all information and 

submitting recommendations to the commander 

• Ensuring proper information flow across staff elements/

supported and supporting units

• Anticipating and synchronizing operations within the 

Administrative and Logistics Operations Center (ALOC)

• Ensuring all appropriate paperwork is filed in a timely manner 

(e.g., Line of Duty investigations)
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Line of Duty References

Army: Army Regulation (AR) 600-8-4, ―Line of Duty 

Policy, Procedures, and Investigations‖ 

Air Force: Air Force Instruction (AFI) 36-2910, ―Line of 

Duty (Misconduct) Determination‖

Army/Air National Guard: National Guard Regulation 40-3, 

―Medical Care For Army National Guard Members‖

Navy/Marine Corps: Judge Advocate General Instruction 

5800.7

5.3.1 XO Phase 1 - Assessment and Preparation/ Mobilization

 Ensure procedures are in place to capture costs. This is the XO‘s 

primary responsibility in a DSCA environment because it 

requires staff coordination (see Resource Tracking List in 

Annex J).

 Ensure quartering party and stay-behind personnel are 

predetermined and cognizant of their duties and responsibilities.

 Request staff augmentation. Have a prepositioned request for 

skill sets where your organization is currently short. Shortages 

may include Chaplain, Staff Judge Advocate, Public Affairs 

Officer, medical personnel, Specialized Logistics Support 

(transportation, or maintenance skill sets), and communication/

information management.

5.3.2 XO Phase 2 - Deployment 

 Ensure personnel accountability and security.

 Continue tracking operational mission costs.

 Be prepared to conduct split-based operations.

 Be prepared to coordinate Base Support Installation (BSI)

support or serve as detachment commander or Task Force 

Commander.

 Assume self-feeding and self-care needs and have personnel 

plan/pack accordingly.

 Have a Hazardous Materials (HAZMAT) strategy and be 

responsible for the environment. 
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5.3.3 XO Phase 3 - Support of Civil Authorities

 Initiate actions to safeguard resources, personnel, and equipment.

 Continue to track operational costs.

 Prepare command brief for VIPs.

 Continue to prevent HAZMAT issues.

 Monitor work/rest cycles. (Commanders and staff are your 

principal concerns.)

 Ensure security posture is maintained. 

5.3.4 XO Phase 4 - Re-deployment/Demobilization

 Develop closeout and re-deployment plan in coordination with 

Joint Force Headquarters (JFHQ), Defense Coordinating Officer 

(DCO)/Defense Coordinating Element (DCE), or Joint Task 

Force (JTF) as appropriate.

 Track re-deployment/personnel accountability.

 Leave a clean footprint. Your commander does not want a 

HAZMAT bill from the local community.

 Ensure re-deployment orders, tickets, travel/transportation of 

personnel and equipment back to home station is coordinated.

 Determine who is staying behind to close all the loose ends (Line 

of Duty, facilities turn-over, equipment repair, etc.).

 Ensure staff transitions responsibilities to civilian counterparts.

 Prepare AAR comments and document lessons learned.
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1 Section‒Personnel/Human Resources

5.4 A/N/S-1Personnel/Human Resources

Civilian counterpart(s): Duties may be spread within the Incident 

Command System (ICS) Planning Section‒Resource Unit, and/or

Documentation Unit and Finance /Administration Section‒Time 

Unit.

Personnel management in a DSCA environment presents challenges 

such as:

• Working with civil authorities and operating within United 

States laws

• Working with civilian medical facilities in tracking military 

personnel status, when required

• Integrating and accounting for DoD civilians/contractors

specifically augmenting your unit

• Capturing expenditures directly related to the DSCA mission for 

reimbursement

• Potential issues resulting from family members within the 

affected area

• Varying levels of existing infrastructure and available support 

from the Base Support Installation (BSI)

A/N/S-1 personnel should coordinate for additional Human 

Resources/Personnel services available at the BSI and for 

replacement personnel from home station (e.g., legal, medical, 

contracting, and finance).

5.4.1 A/N/S-1 Phase 1 - Assessment and Preparation/

Mobilization

 Develop and maintain DSCA-specific alert roster.

 Determine internal section operating requirements based on the 

conditions of the AO and provide to the A/N/S-4.

 Locate civilian hospitals.

 Modify casualty reporting and tracking procedures to address 

unique challenges of operating in a DSCA environment. For 

example, access to the media may be greater during a DSCA 

operation, increasing the need for effective and accurate casualty 

reporting.
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 Prepare appointment orders, when necessary.

 Coordinate casual pay procedures and military pay problems 

with the BSI (or nearest military installation with pay office).

 Conduct personnel readiness processing.

 Develop ―leave under emergency conditions‖ procedures and, 

depending on the duration of mission, ordinary leave policies.

 Plan and publish personnel tracking requirements/reports and 

timelines.

 Establish mail operations.

 In coordination with A/N/S-4, establish Administrative and 

Logistics Operations Center (ALOC).

 Establish communications with the American Red Cross (ARC) 

and other civilian and military organizations that have 

sustainment roles in DSCA. 

Support to the ARC is authorized at the installation level as 

a special exception under DoD Directive 1330.5, ―American 

National Red Cross.‖ This allows DoD installations and 

units to support the ARC with warehousing, transportation, 

communications, and office spaces. 

5.4.2 A/N/S-1 Phase 2 - Deployment 

 Be prepared to provide an A/N/S-1 representative for the 

advance party.

 Prepare (with staff assistance) JRSOI briefing.

 Establish reporting procedures for your subordinate units and 

coordinate with your higher headquarters for any specific 

policies, specific Joint Personnel Status and Casualty Report

(JPERSTAT) format, or procedures (see Annex J).

 Ensure all military personnel update their information (Army 

Disaster Personnel Accountability and Assessment System 

(ADPAAS), Air Force Personnel Accountability and Assessment 

System (AFPAAS), Navy Family Accountability and 

Assessment System (NFAAS).
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5.4.3 A/N/S-1 Phase 3 - Support of Civil Authorities

 Continue to conduct personnel strength reporting.

 If unit personnel live in the area affected by the disaster, 

coordinate sheltering support and determine availability of other 

support services (commissary, Post Exchange (PX), daycare, 

etc.).

 Identify/use ICS reporting forms for submission to the Defense 

Coordinating Officer (DCO) or Joint Task Force (JTF)-State/

Joint Force Headquarters (JFHQ)-State when necessary. 

 Establish leave policies when incidents are likely to be long

term.

 Establish procedures for family members to contact military 

personnel.

 Coordinate with Public Affairs Officer (PAO) for media 

interactions. 

 In coordination with the Primary Agency, be prepared to provide 

personnel to support visitor operations.

 Coordinate for use of BSI facilities or develop internal Morale, 

Welfare, and Recreation (MWR) plans.

MWR opportunities are important for relieving stress during 

extended missions. 

5.4.4 A/N/S-1 Phase 4 - Re-deployment/Demobilization

 Track units as they depart the Area of Responsibility (AOR).

 Out-process personnel through JRSOI.

 Respond to approved requests for personnel information on unit 

members to assist other staff sections in the completion of their 

duties (such as unit accountability of injured personnel and 

medical claims reimbursement).

 Ensure that all assigned military personnel complete a postdeployment health assessment (DoD Form 2796) prior to leaving 

the AOR (prior to redeployment to home station). If the situation 

does not allow for completion of the health screening prior to 

departure, the individual‘s unit commander will ensure that the 
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health assessment is completed and submitted to the local 

Medical Treatment Facility (MTF) commander at home station 

within 30 days of the individual‘s return. 

 Ensure completion of Post-Deployment Health Reassessments 

(DoD Form 2900) by all deployed individuals 90 to 180 days 

after redeployment to home station. Also ensure coordination 

with installation MTF for completion of for all personnel 

returning from deployment screening is performed by qualified 

personnel. Track status of Post-Deployment Health 

Reassessment for assigned personnel. 

 Determine awards. Humanitarian Service Medal Awards are 

awarded for Presidential Disaster Declarations; however, 

National Interagency Fire Center (NIFC) activations without a 

declaration are insufficient for a Humanitarian Service Medal. 

Local awards to incident command staff are encouraged. Follow 

ethics regulations.

 Prepare AAR comments and document lessons learned.

NOTES
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2 Section‒Intelligence 

5.5 A/N/S-2Intelligence

Civilian counterpart(s): Duties may be located within the Incident 

Command System (ICS) Planning Section‒Intelligence Unit (if 

resourced) or Situation Unit, or Operations Section‒Security 

Operations Branch.

In a DSCA environment, do not use the terms ―Intelligence, 

Surveillance, and Reconnaissance (ISR)‖ or ―Intelligence 

Preparation of the Battlefield (IPB).‖ The appropriate 

terminology in a DSCA environment is Incident Awareness 

and Assessment (IAA).

Collecting intelligence and identifying information on United 

States citizens, as defined by DoD Regulation 5240.1-R, is 

prohibited, except as prescribed by DoD 5240.1-R. However, 

gathering information on weather, roads, environmental factors, and 

incident information is legal and necessary. It is important that DoD 

personnel know to report all information regarding crimes or illegal 

activities to the appropriate civilian law enforcement authorities.

Chairman of the Joint Chiefs of Staff (CJCS) Standing 

DSCA Execution Order (EXORD), 14 August 2009, 

authorizes the use of traditional intelligence asset 

capabilities for non-intelligence purposes in the conduct of 

DSCA missions under only seven types of IAA modules: 

• Situational awareness

• Damage assessment 

• Evacuation monitoring

• Search and rescue 

• Chemical, Biological, Radiological, Nuclear, or highyield Explosives (CBRNE) assessment 

• Hydrographic survey 

• Dynamic ground coordination 

For all purposes, intelligence oversight rules under DoD 

5240.1-R apply.
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5.5.1 A/N/S-2 Phase 1 - Assessment and Preparation/

Mobilization

All request for imagery or other intelligence support for 

areas within the United States are subject to U.S. 

Government Intelligence Oversight Regulations and DoD

Regulation 5420.1-R, ―Procedures Governing the 

Activities of DoD Intelligence Components That Affect 

United States Persons.‖ DoD intelligence component 

capabilities, resources, and personnel, as a rule, may not be 

used for activities other than foreign intelligence or 

counter-intelligence, unless that use is specifically 

approved by the SecDef. In addition, due to the potential 

violations of the Posse Comitatus Act through direct DoD 

support to civilian Law Enforcement Agencies (LEAs), 

requests for military support to civilian LEAs are closely 

reviewed and processed separately for approval. Such 

requests for support should be processed in accordance 

with DoD Directive 5525.5, ―DoD Cooperation with 

Civilian Law Enforcement Officials‖ and DoD Regulation 

5240.1-R, Procedure 12. See also North American 

Aerospace Defense Command (NORAD)-Northern 

Command (NORTHCOM) 14-3, ―Domestic Imagery.‖ 

 IAA of the disaster area should be conducted in accordance with

NORAD-NORTHCOM 14-3. Open source (media) reporting 

may provide necessary and appropriate information.

 Identify mission requirements through coordination with civil 

authorities and/or Joint Force Headquarters (JFHQ)-State J2 in 

the AO to determine gaps in IAA coverage.

 Determine if IAA architecture has already been established 

through civil authorities or JFHQ-State J2.

 Ask what maps the civilian agencies are using and how you can 

obtain them. Whenever possible, maps should be synchronized 

so that everyone is operating from the same map.
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 Obtain maps (paper and electronic), both civilian and military,

and determine electronic topographic capability. 

 Build map products to locate/track:

o Military personnel 

o Critical facilities infrastructure 

o Areas where road signs, roads, and landmarks are destroyed

Maps and Imagery Sites

Geodata.gov (for maps)

http://gos2.geodata.gov

Google Earth for .mil (United States Army Corps of 

Engineers (USACE) site)

https://gearportal.usace.army.mil/dotmil/Default.aspx

InciWeb ‒ an interagency all-risk incident web information 

management system provided by United States Forest 

Service

http://www.inciweb.org

Regional and State Online Resources for Emergency 

Management

http://rasor.jsrts.org

The National Map

http://nationalmap.gov/

United States Geological Survey (USGS) Homepage

http://www.usgs.gov/

USGS Aerial Photographs and Satellite Images 

http://www.usgs.gov/pubprod/aerial.html

USGS Emergency Operations Page 

http://hdds.usgs.gov/EO/

USGS Maps, Imagery, and Publications 

http://www.usgs.gov/pubprod/maps.html
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 Determine/display military and civilian Areas of Responsibility 

(AORs) on map. 

 Ascertain population demographics of residential areas with a 

particular emphasis on language translation requirements. 

 In coordination with medical personnel, develop a consolidated 

list of locations of closest civilian and/or federal medical 

facilities based on input from FEMA Joint Medical Planner.

5.5.2 A/N/S-2 Phase 2 - Deployment 

 Be prepared to provide representative for advance party.

 Establish information gathering methodologies.

 Establish contact with IAA counterparts.

 Process information as it comes from impact area or civilian 

sources in accordance with mission requirements.

 Request additional IAA mission support, if appropriate.

 Ensure commanders and all staff elements (especially the PAO) 

understand that in a DSCA environment, the terms ―Intelligence, 

Surveillance, and Reconnaissance‖ or ―Intelligence Preparation 

of the Battlefield‖ are not to be used. Terminology in a DSCA 

environment is Incident Awareness and Assessment.

5.5.3 A/N/S-2 Phase 3 - Support of Civil Authorities

 During terrain analysis, determine the civilian infrastructure that 

should be considered (e.g., Sewer, Water, Energy, Access/

Admin, Transportation, Medical and Safety (SWEATMS)). 

 Maintain contact with IAA counterparts for assistance in 

obtaining incident information. 

 Post weather assessment and monitor weather conditions.

 Identify/display areas without utilities.

 Work in coordination with incident management planning staff.

5.5.4 A/N/S-2 Phase 4 - Re-deployment/Demobilization

 Determine/execute close-out activities.

 Safeguard and transfer sensitive information and imagery 

collected during operation in accordance with NORADNORTHCOM 14-3, ―Domestic Imagery.‖

 Prepare AAR comments and document lessons learned.
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3/5/7 Section‒Plans and Operations 

5.6 A/N/S-3/5/7Plans and Operations

Civilian counterpart(s): Operations Section Chief

Operations/planning in a DSCA operation require a change of 

mindset. Your unit is operating in support of the civilian authorities. 

The Plans and Operations Sections should review civil authority 

planning considerations, Incident Action Plan (IAP), state, county, 

and local Mutual Aid Agreements, and Memoranda of 

Understanding (MOU) before issuing operational guidance. 

To integrate efficiently and effectively into the incident response, 

you must understand the civilian battle rhythm and processes.

Become familiar with the Incident Command System (ICS) process

(see Chapter 2).

Recommended DSCA training for Officers/Non-Commissioned 

Officers (NCOs) in leadership positions at the tactical level

• Unit Mobilization Planners Course 

• Unit Movement Officer Course

Available at FEMA Emergency Management Institute (EMI): 

http://training.fema.gov/IS/

• IS 100.a: Introduction to Incident Command System (ICS) 

• IS 200.a: ICS for Single Resources and Initial Action Incidents 

• IS 700.a: National Incident Management System (NIMS): An 

Introduction 

• IS 800.b: National Response Framework (NRF): An Introduction 

State resident courses: http://training.fema.gov/IS/otherNIMScrs.asp

• ICS 300: Intermediate ICS (state resident course, advanced 

training; required by United States Coast Guard) 

• ICS 400: Advanced ICS (state resident course, advanced training)

Available at ARNORTH DSCA training http://www.dsca.army.mil/

• DSCA Phase I Course (online)—prerequisite for DSCA Phase II 

Course (resident) 
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5.6.1 A/N/S-3/5/7 Phase 1 - Assessment and Preparation/

Mobilization

 Review disaster response plans.

 Exercise communications with Joint Field Office (JFO) and/or 

Joint Force Headquarters (JFHQ)-State.

 Continually determine LNO requirements, nominate LNOs to the 

commander, and establish LNO support relationships. 

Unit LNOs are different from Emergency Response Liaison 

Officers (EPLOs). EPLOs are LNOs specifically trained in 

DSCA. They are military department assets and may be 

employed by their military secretaries in a DSCA 

contingency role. Unit LNOs represent their command.

 Establish and maintain communications with military units/

organizations and appropriate military commands in your AO.

 Determine the military chain-of-command and civilian command 

organization.

 Contact the relevant Defense Coordinating Officer (DCO)/Joint 

Task Force (JTF)-State/JFHQ-State as appropriate to determine 

mission requirements and on-the-ground conditions.

 Write DSCA operation Warning Order (WARNO).

 Title 10—review mission tasking coordinated through the DCO.

 Establish requirements for advance party. 

 Anticipate potential force packages that may be required of your 

unit.

 Coordinate with SJA to determine Rules for the Use of Force 

(RUF)/Rules of Engagement (ROE).

 Prepare deployment OPORD.

 Establish battle rhythm in coordination with other staff elements; 

determine reporting requirements and timelines.

 Determine mission specific training that is required to support 

the DSCA operation.

 If issue of weapons is authorized, determine weapons storage 

requirements.
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Only the SecDef can authorize deployment with weapons for 

Title 10 forces.

5.6.2 A/N/S-3/5/7 Phase 2 - Deployment 

 Establish the base of operation (advance party).

 Track Mission Assignment (MA) execution and direct units to 

track costs.

 Complete OPORD. 

 Conduct update brief.

 Establish Tactical Operations Center (TOC). 

 Track incident developments during deployment phase. 

 Obtain the emergency operation plans for federal, state, tribal,

and local organizations. 

 Establish communications and coordinate with the DCO/Defense 

Coordinating Element (DCE), National Guard Bureau (NGB)

and/or JFHQ-State as appropriate.

Assessment Information Development

Coordinate with DCO/Joint Force Commander(JFC) or JFHQ-State 

to obtain key points of contact in your AO, such as:

• Chief of Police 

• Chief of Fire Department 

• Chief Executive Officer of Town 

• Emergency Medical Service Chief of Town 

• Emergency Management Director of Town 

• Infrastructure management security (mall, prison, etc.), if any 

Location of Site 

• Specific location of incident by latitude/longitude, Military Grid 

Reference System (MGRS) or Global Positioning System (GPS)

to facilitate airborne operations 

• Major routes and roads into and out of site 

• Areas that could be used as potential staging areas and helicopter 

landing sites 
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Site Considerations 

• Any known hazardous materials located at or near site 

• Any natural or man-made barriers or terrain features that would 

create or hinder operations 

• Square footage of site to help focus scope of operation 

• Population of site (peak and off-peak)

• Times of day that population fluctuates

• Lighting conditions during hours of darkness 

Site Considerations (Medical) 

• Locations and phone numbers of medical facilities in the vicinity 

• Locations and phone numbers of all designated emergency shelters 

in the vicinity of the site and their capacity

• Location to which rescued persons will be delivered, in 

coordination with local authorities; air control coordination 

element set-up in AO

Communications 

• Primary mode of communication (radio, telephone, cell phone, email, etc.) for all entities involved 

• List of radio frequencies, email addresses, etc. that are site specific 

to any incident response

5.6.3 A/N/S-3/5/7 Phase 3 - Support of Civil Authorities

 Ensure risk assessment is conducted for every phase of the

operation and obtain approval.

 Maintain communications with LNOs.

 Protect the force by:

o Conducting all-hazards threat assessment

o Implementing baseline Force Protection Condition (FPCON)

and other directed force protection measures

o Implementing threat warning and reporting

o Ensuring forces on DoD installations are integrated into 

installation Anti-Terrorism (AT) plans

o Prescribing appropriate Personal Protective Equipment 

(PPE)

o Directing security measures to mitigate risk
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 Receive and process Requests for Information (RFIs).

 Identify any Hazardous Material (HAZMAT) concerns in the 

AO. Provide locations and detailed situational information to 

civilian HAZMAT teams. Develop procedure for communicating 

HAZMAT issues.

 Assist in locating hazards or potential threats when necessary.

 Assist in determining numbers and locations of dislocated 

persons when necessary. Economically distressed areas tend to 

have more victims. These areas may be located near industrial 

areas containing hazardous materials. 

 Assist in locating victims that require rescue, evacuation, and/or 

medical treatment and provide other sustainment activities when 

necessary.

It is critical that all personnel rescued or evacuated be 

tracked in coordination with the JFHQ/JFO.

 Plan for reacting to escalating hazards such as fires, chemical 

spills, ruptured pipelines, and civil disturbance.

 Determine status of lines of communication:

o Major roads

o Railroads

o Waterways

o Ports

o Airports

 In coordination with civilian authorities, state the nature and 

extent of damage and projected repairs.

 In cooperation with ICS staff, forecast what operations will most 

likely occur.

5.6.4 A/N/S-3/5/7 Phase 4 - Re-deployment/Demobilization

Be aware! If local businesses and contractors can perform 

missions and tasks assigned to DoD, continued employment 

of the military may be unnecessary or illegal. Know when to 

back away and allow civilian organizations to take over.
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 In accordance with DCO or The Adjutant General (TAG), set 

end-state conditions as soon as possible and recognize when the 

unit‘s work is complete. 

 Notify authorities of demobilization timeline. 

 In coordination with DCE, compile all data from support 

operations, including but not limited to total man-hours used, 

number and type of equipment used, fuel usage, maintenance 

performed (see ―Resource Tracking‖ in Annex J). Also track 

equipment lost, damaged or destroyed.

 Coordinate with base operations for turn-in of issued equipment 

and clearing of all facilities.

 Collect and consolidate all journals, reports, records and notes 

for input to the AAR and subsequent filing in accordance with

Service guidance.

 Review all journal entries and verify that supporting documents 

substantiate them.

 Compile entire staff AAR comments and lessons learned and

forward to appropriate agencies.

NOTES
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4/8 Section‒Logistics and Resource Management 

5.7 A/N/S-4/8Logistics and Resource Management

Civilian counterpart(s): Logistics Section Chief

Effective logistics support operations in a DSCA environment are

critical. Remember, the military is in direct support of civilian

authorities, and DoD units may be required to logistically support 

civilian organizations as well as provide for individual unit‘s needs. 

Knowing the logistics plans of the civil authorities and creating a 

strong working relationship with liaisons is the best way to ensure 

success in a DSCA environment.

Logistics functions will normally be supported from the closest Title 

10 installation. This installation is designated as the Base Support 

Installation (BSI). Title 10 forces will base from and receive support 

from the BSI for operations in the response area. It is imperative for 

logisticians to quickly integrate logistics operational requirements 

into the BSI requirements to prevent shortages of equipment, repair 

capabilities, or logistics classes of supply.

The A/N/S-4/8, in coordination with the Chaplain, must be proactive 

in establishing procedures to address the challenges of mortuary 

affairs in a DSCA environment. Military mortuary affairs within the 

United States differ from combat-related mortuary affairs. Military 

mortuary affairs also differ from civilian mortuary affairs. In 

addition, military personnel will find that civilian mortuary affairs 

differ by locality. The potential for a significant number of American

civilian deaths due to the incident presents challenges that military 

personnel are not accustomed to handling. See Chapter 8, ―Mortuary 

Affairs‖ in the Liaison Officer Toolkit for more details.

The specific legal authorities outlining what Service 

members can and cannot do regarding mortuary affairs and 

recovery of human remains vary by state, and often by 

community. For more information, see Joint Publication 

(JP) 4-06, Mortuary Affairs in Joint Operations.
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4/8 Section‒Logistics and Resource Management 

5.7.1 A/N/S-4/8 Phase 1 - Assessment and Preparation/

Mobilization

 Begin tracking all costs, expenditures, and Mission Assignments 

(MAs) prior to deployment.

 Establish contact with the BSI. Coordinate as many logistics 

functions through the BSI as possible.

It is one of the many tasks expected of the BSI to provide 

buses for the mission. Deploying units should coordinate 

with the BSI to plan this movement, especially if they have 

large numbers of personnel arriving at one time, or have 

oversized equipment. This will ensure that not only buses, 

but trucks and Materials Handling Equipment (MHE) is 

available for the move. It also ensures that convoy 

clearances are arranged and that routes are known for 

wheeled vehicle moves. 

 Determine supply providers, locations, and transportation 

requirements and options for Area of Responsibility (AOR).

 Determine aviation logistics requirements and coordinate for 

maintenance and supply actions in the AOR.

 Estimate how a reduced infrastructure will impact supply

distribution and standard consumption rates.

 Determine sources for Petroleum, Oil, and Lubricants (POL) in 

the AOR. At a minimum bring 30 Days of Supply (DOS).

 Inquire if other federal supplies and equipment (external to DoD) 

can be used in support of DSCA operations.

 Estimate logistics support requirements for each class of supply. 

Title 10 resupply will come from the BSI on a ―fill or kill‖ basis. 

Plan accordingly to have items shipped from home station if 

necessary.

o Class I – Food—when and where units will be fed; sources 

of potable drinking water

o Class II – Durable Supplies and Equipment (Note: Radios 

can be acquired from National Interagency Fire Center

(NIFC))
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o Class III – Bulk and Packaged POL Products—a minimum 

of 30 DOS

o Class IV – Barrier Materials—for safety and security of unit 

personnel, on-going weather phenomena, and impacts on 

personnel comfort (may need tarps and plywood flooring)

o Class V – Ammunition—usually not required for Title 10 

forces participating in DSCA operations except to protect 

property and equipment or for show of force (all forces 

should review Rules for the Use of Force (RUF))

o Class VI – Personal Items—where and how personnel will 

obtain basics (toothpaste, shaving cream, deodorant, stamps, 

envelops, gloves, undergarments, t-shirts); where personnel 

will wash clothes and shower

o Class VII – Major End Items—for maintenance service and 

repair capabilities that exceed unit‘s organic repair 

capabilities

o Class VIII – Medical Supplies and repair parts

o Class IX – Repair parts—deploy with standard shopstock/

benchstock and Authorized Stockage List (ASL) items to 

support minimum of 30 DOS

Resupply from BSI—What You Need to Know

1) Based on forecasts provided from the operational headquarters J4, 

common user logistics items, i.e., Class I (food and water) and 

Class III (bulk fuel), will be ordered using the BSI supply support 

document numbers through normal Military Standard\

Requisitioning and Issue Procedures (MILSTRIP) processes. 

Authorized units will request and draw commodity support from 

the BSI supply support activity.

2) Class IV (engineer barrier material) support is not an anticipated 

requirement from the BSI. Exceptions will be provided to the 

installation by the designated operational headquarters as part of the 

requirements forecasts.
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3) Ammunition will not be drawn from the BSI unless by exception.

4) Class VI items will be purchased from the installation commissary 

and Post Exchange (PX)/Base Exchange (BX) as required by the 

deployed forces. The BSI will not need to provide sundry packs to 

supported forces.

5) BSI medical facilities will support the hosted forces for medical 

treatment as required. Medical logistics will be provided by the 

Single Integrated Medical Logistics Manager (SIMLM), normally 

the Army Service Component.

6) Class IX items may be requested using the ―fill or kill‖ 

methodology.

7) The BSI will track and report all costs incurred. Reimbursement 

procedures are published in USNORTHCOM orders specific to the 

response. In general, the Financial Management Assistance Team 

(FMAT) will provide the BSI with a reimbursable budget line of 

authority when reimbursement can be expected from a supported 

federal agency. Otherwise, BSI costs are contingency funded. The 

BSI must capture all costs (including overtime for civilian 

personnel) and report through their Service chain as well as through 

Operational Command (Army North (ARNORTH)) G-8 and the 

Combatant Command (USNORTHCOM) J-8.

8) Services are responsible for Service-specific logistics and personnel 

support of deployed units. Units are expected to ―reach back‖ to 

their home station for Service-specific items. Requested assets can 

be shipped forward by any commercial or military convoy means. 

9) The BSI will support movement of forces from the Aerial Port of 

Debarkation (APOD) to the reception site (on the BSI) and 

movement of equipment from the APOD to staging areas (on the 

BSI). Types and quantity of support equipment will be based on the 

Time-Phased Force and Deployment Data (TPFDD) in Joint 

Operation Planning and Execution System (JOPES). The BSI will 

also assist in the retrograde of equipment from BSI to Aerial Port of 

Embarkation (APOE) and movement of forces to the APOE as they 

redeploy. 

10) The BSI may be required to support APOD operations and to 

support DoD elements operating the APOD. This support will be 

coordinated with the J4 from the operational headquarters. 
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 Contact your Incident Command System (ICS) counterpart, 

Logistics Section Chief (LSC), or state equivalent early in the 

deployment and work closely with him/her. Based on the 

complexity of the incident, a Deputy LSC who reports to the 

LSC may be assigned to your unit.

 Plan for military sustainment requirements (shelter, mess, 

rations, water, bath, laundry, etc.).

 Coordinate with the LSC at the earliest opportunity regarding

sustainment requirements, including:

o Bivouac site and size

o Shower facilities

o Laundry

o Latrines

o Power (hard-line or generator)

o Trash service

o Telephone capabilities

o Copier

o Ordering procedures for civilian supplies

 Determine if MWR phones are available (availability and 

number vary by incident).

 Determine military versus civilian supplied items. 

 Determine military vehicle restrictions early in the predeployment phase. 

 Plan for weapons storage and guard force, if necessary.

 Establish policies and procedures for military personnel 

transportation within the AOR.

 Determine specialized equipment that will be needed and if

specific personnel equipment (e.g., cold weather, medical

supplies) is available.

 Plan for maintenance requirements of military equipment.

 Coordinate with The Adjutant General (TAG) on use of state 

maintenance facilities for equipment and vehicles. 

 Know the power requirements (110V versus 220V) for your 

equipment. Always bring your own power generation equipment, 

parts, and fuel for essential communication equipment.
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 Plan for civilian power requirements, including generators,

extension cords, multi-plug devices, charging cell phones, 

charging laptops, etc.

 Identify civilian contracting options and requirements.

 Determine if DoD/federal/state support organizations are 

available to provide needed sustainment.

 Be prepared to deploy a logistics representative with the advance 

party.

5.7.2 A/N/S-4/8 Phase 2 - Deployment 

 Begin tracking detailed mission costs and financial expenditures.

Keep receipts. The following is a partial list of items to include

(see ―Resource Tracking‖ in Annex J for a more complete list):

o Record of missions performed, with particular attention to all 

aviation mission support

o Rosters of personnel involved

o Travel and per diem (military and civil service)

o Lodging cost

o Transportation cost (car and bus rentals, chartered aircraft, 

and fuel)

o All contracting costs

o Equipment provided or operated (estimated hourly cost for 

operation)

o Materiel provided from regular stock (all classes of supply)

o Laundry expenses

o All classes of supply expended

In order for DoD to receive reimbursement, DSCA support 

is documented in a memorandum to higher headquarters 

with A/N/S-4, A/N/S-8 involvement.

 Report daily Logistics Status (LOGSTAT) (format in Annex J)

and at the update brief.

 Ensure contracting officer representative and pay officer are 

properly trained and on orders to support mission requirements. 
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 Establish Administrative and Logistics Operations Center 

(ALOC).

 Gather and consolidate logistics reports. 

 Develop a Personal Protective Equipment (PPE) exchange policy 

with LSC if necessary. Daily exchanges of equipment can be 

overwhelming if this is not done correctly.

 Determine logistics supply points/distribution.

5.7.3 A/N/S-4/8 Phase 3 - Support of Civil Authorities

 Confirm locations/sources to purchase parts, POL, and supplies. 

These may not exist in the disaster area. Confirm memoranda of 

understanding for supplies that will be needed.

 Procure and plan movement for food, water, and supplies.

Ensure you have batteries for military and Commercial Offthe-Shelf (COTS) equipment.

 Work with the LSC at the incident site to establish issue records 

concerning civilian equipment issued by the civilian authorities.

 Submit statements of work/requirement determination through 

the supporting contracting team.

 Establish controls for use of government purchase cards.

 Coordinate with medical officer/team for efficient disposition of 

organic medical assets. 

 Provide ground support/military transport and civilian movement 

as needed.

 Plan vehicle recovery/extraction.

 Confirm waste removal plans. 

 Find local sources of media reproduction (e.g. high-speed, large 

format printing).

 Support the American Red Cross as required per Title 10 United 

States Code (USC), Section 2602.

 Provide mortuary services for military personnel according to 

regulations. 

 Determine how to process mortuary services for civilian 

casualties.
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4/8 Section‒Logistics and Resource Management 

5.7.4 A/N/S-4/8 Phase 4 - Re-deployment/Demobilization

 In coordination with Defense Coordinating Element (DCE), 

compile all data from support operations, including but not 

limited to total man-hours used, number and type of equipment 

used, fuel usage, maintenance performed and equipment lost, 

damaged or destroyed. 

 Complete accounting and turn-in of any unused supplies, with 

emphasis on Class V (Ammunition).

 Assign logistics officer to clear remaining logistics issues. 

 Close out all remaining contracts.

 Submit reports and request reimbursement. 

 In demobilization procedures, include clearing base camp of

equipment provided by civilian authority (including COTS 

service agreements) and disposing of COTS equipment.

 Prepare AAR comments and document lessons learned.

NOTES
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6 Section‒Communications

5.8 A/N/S-6Communications

Civilian counterpart(s): Communications Unit Leader (Logistics 

Section)

Communications in a DSCA operation is unique. Internal military 

communications can be accomplished in accordance with unit 

standard operating procedures; however, requirements to 

communicate with civilian authorities may present challenges. 

Depending upon the situation, your unit may be tasked to provide 

communications for civilian authorities. 

Expect that your military communications equipment will not be 

compatible with civilian equipment. Civilian equipment will not be 

capable of adapting to military systems; military units must be 

prepared to adapt to them. The National Interagency Incident 

Communications Division (NIICD) located at the National 

Interagency Fire Center (NIFC) has 80,000 radios available to 

support DSCA operations. For important information regarding the 

operation and maintenance of commercial communications 

equipment, go to the NIICD website: 

http://www.fs.fed.us/fire/niicd/index.html

Units can also procure Commercial off-the-Shelf (COTS) equipment, 

and if necessary, fund services to establish communications with 

civilian counterparts. Refer to the National Interoperability Field 

Operations Guide (NIFOG) for guidelines for communicating with 

federal, state, and local authorities.

Critical! Make sure all LNOs have the necessary equipment 

to communicate with higher headquarters and that they 

have computer systems and wireless or satellite capability 

to perform their duties effectively. 

Emergency frequencies will be congested, so limit the use of 

communications equipment. Direct discipline when using civilian 

frequencies (i.e., stay on your assigned frequency). When
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communicating with civilian organizations, be clear, specific, and 

avoid acronyms and other military jargon. Bottom line: Effective 

communication is the vital link to a successful DSCA operation.

5.8.1 A/N/S-6 Phase 1 - Assessment and Preparation/ 

Mobilization

 Plan for LNO communications requirements.

 Obtain a copy of the NIFOG.

 Coordinate with military, local, tribal, state, federal agencies and 

organizations, Non-Governmental Organizations (NGOs), and 

volunteers to determine the most feasible solutions for effective 

communication.

 Identify civilian Common Operational Picture (COP) 

requirements and determine the best method of accessing State 

Emergency Management Agency (SEMA) software.

 Ensure initial communications capabilities are self-sufficient. If 

possible, coordinate interoperability with local authorities.

 Do not send equipment without operators, essential repair parts, 

manuals, tools, and initial fuel and power generation 

requirements. Items may be difficult to obtain in the affected 

area. 

 Determine if military will be required to provide 

communications availability to civilian authorities. If yes, then:

o Determine configuration requirements

o Procure equipment (all sources—military, other federal 

agencies, and civilian)

o Establish data and voice protocols

o Keep good records for funding reimbursement

 Plan for all means of communications and purchasing of 

additional communication devices/services: 

o Telephone (satellite, cellular, or landline) 

o Radio (military, maritime, and civilian, in all bandwidths) 

o Non-classified Internet Protocol Router Network (NIPRNet) 

o Secret Internet Protocol Router Network (SIPRNet)

o Video equipment and video teleconferencing

o Satellite-based commercial internet systems 
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Ensure you have batteries for military and COTS 

equipment.

5.8.2 A/N/S-6 Phase 2 - Deployment 

 Issue communications plan.

 Establish communications architecture (Internet, telephone 

landline, and cell phone network).

 Establish and maintain communications with Joint Force 

Headquarters (JFHQ), Defense Coordinating Officer 

(DCO)/Defense Coordinating Element (DCE), Joint Task Force 

(JTF), and Incident Commander (IC) as appropriate.

 Publish military phonebook and acquire important civilian point 

of contact (POC) listings. Avoid publishing Defense Switched 

Network (DSN) numbers.

 Be prepared to deploy communications representative with the 

advance party.

 Determine initial communications package and how it can be 

expanded to handle a greater demand.

5.8.3 A/N/S-6 Phase 3 - Support of Civil Authorities

 Ensure all communications and information technology 

personnel are qualified.

 Establish Tactical Operations Center (TOC)/Area 

Communications Operations Center (ACOC) communications 

architecture.

 Conduct synchronization meetings between all primary 

agencies/entities that have impact.

 Monitor status of satellite/cell phones and satellite/cable Internet.

 If necessary, provide communications equipment (cell phones, 

radios, base sets, etc.) to civilian authorities.

 Know the power requirements for your equipment. Always bring 

your own power generation equipment, parts, and fuel for 

essential communication equipment.

 Prepare daily update brief slides.
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5.8.4 A/N/S-6 Phase 4 - Re-deployment/Demobilization

 Ensure accountability for all communications equipment loaned 

or borrowed.

 Cancel COTS service agreements, and dispose (by standard 

operating procedures) of COTS equipment.

 Prepare AAR comments and document lessons learned.

NOTES
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Public Affairs Officer

5.9 Public Affairs Officer/Information Officer 

Civilian counterpart(s): Public Information Officer (Command Staff)

Fostering and furthering good relations with communities at home 

and abroad is in the best interest of the Department of Defense (DoD 

Directive 5122.5, ―Assistant Secretary of Defense of Public 

Affairs‖).

The Public Information Officer (PIO) advises the Incident 

Command on all public information aspects of the 

management of the incident. PIOs handle media and press 

inquiries, emergency public information and warnings, 

rumor monitoring and response, media monitoring, as well 

as performing the necessary preparation, coordination, 

clearing, and dissemination of information related to the 

incident. The PIO also coordinates public information at or 

near the incident site and is the on-scene link to the Joint 

Information Center (JIC).

It is the responsibility of local and state officials to provide 

information/directions to the public (e.g., evacuation, shelter in 

place). Each state determines who in that state has the authority to 

provide directions to the public (e.g., Sheriff, Mayor, Judge). In no 

case will DoD take the initiative to provide directions to the public. 

DoD may assist the appropriate authorities with dissemination of 

information as long as the instructions are properly attributed (e.g., 

―The Mayor has directed a mandatory evacuation for the city‖).

All information related to the incident should be released 

through the incident PIO.

Normally, general information to the public and media about the 

event will come from the incident PAO/PIO or the JIC. Supporting 

agencies may assist in the dissemination of this information but are 

limited to providing specific information only about actions of their 
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agency. For DoD, this means that Public Affairs (PA) activities are 

limited to supporting the Primary Agency or focusing on the actions 

of DoD to support the incident (in coordination with the Primary 

Agency). In no case will DoD PA activities place DoD in the 

forefront; DoD must be portrayed as a partner and participant in the 

incident response.

Service-specific Public Affairs References

Joint Publication (JP) 3-16, Public Affairs

Field Manual (FM) 46-1, Public Affairs Operations

Marine Corps Warfighting Publications (MCWP) 3-33.3,

Marine Corps Public Affairs

Secretary of the Navy Instruction (SECNAVINST)

5720.44B, Public Affairs Policy and Regulations

Air Force Instruction (AFI) 35-101, Public Affairs Policies 

And Procedures

The PAO is responsible for ensuring that military personnel are 

aware of the potential consequences associated with questionable 

behavior on camera or speaking to the media without authorization.

The United States Defense Information School (DINFOS) is 

a DoD school that trains students in career fields related to 

public affairs. For information and course offerings, visit the 

school‘s website: www.dinfos.osd.mil

In addition to training listed in Section 5.6, PAOs are 

encouraged to complete IS 250 Emergency Support 

Function (ESF) #15 External Affairs.

5.9.1 PAO Phase 1 - Assessment and Preparation/Mobilization

 Develop straight talk messages for commander.

Examples of Command Messages and Straight Talk 

Messages may be found in Annex G.
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 Establish contact with the Joint Task Force (JTF)/Joint Force 

Headquarters (JFHQ) PAO, Component PAO, and/or Combatant 

Command PAO as appropriate for Public Affairs (PA) guidance.

 Coordinate with state/FEMA PIO to obtain consistent message/

talking points, if necessary.

 Monitor news media (television, radio, Internet).

 Provide military units with current PA guidance prior to entry 

into the affected area. If PA guidance does not exist, draft 

proposed guidance and submit to higher headquarters.

 Develop media smart cards based on the PA guidance for issue 

to all military personnel involved in DSCA.

 Brief talking points to all personnel prior to deployment.

Remember that for the press, nothing is off the record. The 

camera is always rolling. It is important to stress to Service 

members that a single Soldier, Sailor, Airman, or Marine 

can make a strategic impact, both positive and negative, 

while operating in a DSCA environment.

You can always decline to talk to the media. It is your 

choice. Use your local PA office as your tool for preparation 

and source of information. If you find yourself in an 

uncomfortable media situation, do not hesitate to contact 

PA.

 Develop plans for organization and equipment necessary for a 

PA team.

5.9.2 PAO Phase 2 - Deployment 

 Establish contact with Emergency Support Function (ESF) #15 

External Affairs officer or Primary Agency PAO/PIO and the 

National Guard PAO (if applicable).

 Designate and provide one or two representatives to the JIC (if 

established).

 Brief deploying personnel on media and public engagement 

policy; distribute media smart cards.
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 Issue guidance on personal photography, blogs, and emails in a 

DSCA environment.

 Pre-select and train media escorts as necessary. 

5.9.3 PAO Phase 3 - Support of Civil Authorities

 Provide PA support to the commander.

 Brief task force/unit commanders on their roles, responsibilities,

and authorities concerning public information requests.

 Prepare the commander and other key staff members for media 

interviews.

Basic Public Affairs Guidance

Talking to the media

1. As a member of the military, you have a great story to tell.

2. Everything you say reflects upon your unit, your Service, and the 

Department of Defense.

3. When speaking with a reporter, everything is on the record. 

You may discuss:

• What you do for the Department of Defense or in your National 

Guard unit

• How you train/prepare to deploy

• Personal details you care to share about your family or life

• Your feelings about deploying

• Where, generally, you are headed—e.g., hurricane in Louisiana 

Do not discuss:

• Exact numbers/location of troops/equipment

• Specific aircraft or weapons configurations

• Specific force protection measures

• Rules of engagement

• Classified information

Do Not Speculate—if you don‘t know an answer, say so. If you have 

questions, contact your local PA officer.

 Coordinate with ESF #15 and/or the JIC on DoD PA activities.

 Prepare news releases as necessary.
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 Refer media queries outside the scope of release authority to 

appropriate agencies or higher headquarters.

 Provide video and still imagery of military support to higher 

headquarters in a timely manner.

 If experienced and trained camera crews are available, such as 

combat camera teams, consider requesting that they provide 

imagery support to the PAO. 

5.9.4 PAO Phase 4 - Re-deployment/Demobilization

 Implement a PA strategy for departure of military forces that 

places civil responders in the forefront.

 Develop historical record of media resources (video, photo, 

transcripts, etc.) gathered during the incident.

 Prepare AAR comments and document lessons learned.

NOTES
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Staff Judge Advocate

5.10 Staff Judge Advocate 

Civilian counterpart(s): State Attorney General, County Attorney

The role of the Staff Judge Advocate (SJA) in a DSCA environment

is critical. The laws and regulations regarding operations on United 

States soil differ from those for combat operations. Commanders and 

all DoD personnel operating in a DSCA environment need to be 

aware of these differences.

It is essential that the SJA educate the commander and staff about the 

legal uniqueness of DSCA operations. Detailed information on legal 

aspects of DSCA can be found in Annex A. SJAs work hand-inhand with commanders to ensure that all legal issues that arise are 

handled appropriately.

5.10.1 SJA Phase 1 - Assessment and Preparation/Mobilization

 Have copies of the Standing Rules for the Use of Force (SRUF)

in Chairman of the Joint Chiefs of Staff (CJCS) Instruction 

(CJCSI) 3121.01B available for the commander to review and to 

request mission-specific Rules for the Use of Force (RUF), if 

necessary. See Annex B for SRUF examples.

 Have available DoD Directive (DoDD) 3000.3, ―Policy for NonLethal Weapons‖; DoDD 5210.56, ―Use of Deadly Force and the 

Carrying of Firearms by DoD Personnel Engaged in Law 

Enforcement and Security Duties‖; DoDD 5525.5, ―DoD 

Cooperation with Civilian Law Enforcement Officials‖; DoDD 

5240.1, ―DoD Intelligence Activities‖; and the current CJCS 

Standing DSCA EXORD.

 It is imperative to remember that National Guard personnel 

working in Title 32 or State Active Duty (SAD) status will be 

operating under State RUF. In order to ensure adherence, SJAs 

should obtain and brief equivalent state authorities to those listed 

above.

 Brief personnel on SRUF and issue an SRUF card prior to 

deployment from home station. Each state has its own RUF.

 Review funding, demobilization, and entrance and exit strategies

by component and duty status.
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5.10.2 SJA Phase 2 - Deployment 

 Contact the State SJA at the Joint Force Headquarters (JFHQ) to 

coordinate legal aspects.

 Ensure units arriving under Emergency Management Assistance 

Compact (EMAC) agreements are briefed on State RUF.

 Maintain situational awareness of mission execution and ensure 

unit activities are consistent with the law. 

 Be prepared to deploy required personnel with the advance party 

(if necessary).

 Ensure all military personnel know their legal status (Title 10, 

Title 32, or SAD) and limits of their authorities.

 Provide status reports to higher headquarters including, at a 

minimum, the following:

o Criminal incidents

o Disciplinary/administrative/prosecutorial actions

o Claims against the U.S. Government

o Number of personnel receiving legal assistance

5.10.3 SJA Phase 3 - Support of Civil Authorities

 Continue to advise commanders and staff on legal matters.

 Verify that proposed Mission Assignments (MAs) are legally 

permissible, approved, and executed according to applicable 

references and restrictions.

 Ensure personnel involved in Military Support to Civilian Law 

Enforcement Agencies (MSCLEA) comply with the guidance 

and limitations found in the Posse Comitatus Act, SRUF, and 

Intelligence Oversight rules and restrictions.

5.10.4 SJA Phase 4 - Re-deployment/Demobilization

 Ensure all legal actions are cleared before re-deployment.

 Close all civil/military actions prior to re-deployment.

 Prepare AAR comments and document lessons learned.
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Chaplain

5.11 Chaplain

Civilian counterpart(s): Local Clergy, Priests, Chaplains

Rabbis, Imams, etc. No Incident Command System (ICS)

counterpart.

Joint Publication (JP) 1, Doctrine for the Armed Forces of the United 

States, states that military commanders as responsible to provide for 

the free exercise of religion of those under their authority.

JP 1-05, Religious Affairs in Joint Operations, defines the concept of 

―religious affairs‖ as consisting of two major capabilities of 

chaplains—religious advisement and religious support. 

Religious Advisement is the practice of informing the 

commander on the impact of religion on joint operations to 

include, but not limited to: worship, rituals, customs and 

practices of U.S. military personnel, international forces, 

and the indigenous population.

Religious Support is Chaplain facilitated free exercise of 

religion through worship, religious and pastoral counseling 

services, ceremonial honors for the dead, crisis intervention, 

and advice to the commander on matters pertaining to 

morals, ethics, and morale as affected by religion.

JP 3-28, Civil Support (CS), defines Religious Support (RS) as the 

full spectrum of professional duties performed by chaplains in their 

dual role as religious leaders and military officers. RS in joint 

operations is dedicated to meeting needs of military and other 

authorized members in the personal free exercise of religion and 

providing commanders with professional advice regarding the 

dynamic influence of religion and religious belief in the operational 

area. The purpose of a Religious Support Team (RST) is to provide 

for, develop, and strengthen the spiritual and moral well-being of all 

members of the command. 

Military chaplains, assisted by enlisted chaplain assistant support 

personnel, provide RS as part of a RST, which normally consists of 
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at least one chaplain and one enlisted support person. The RST 

deploys during CS operations for the primary purpose of providing 

RS to authorized DoD personnel. In this context, DoD personnel are 

military members, their families, and other authorized DoD civilians 

(both assigned and contracted) as determined by the Joint Force 

Commander (JFC). 

The Establishment Clause of the United States Constitution and 

current DoD legal guidance generally prohibits chaplains from 

providing RS to the civilian population. However, following certain 

rare and catastrophic large-scale disasters, local and state capabilities 

of all types, to include spiritual care, may be overwhelmed. In these 

situations RSTs may serve as liaison to Non-Governmental 

Organizations (NGOs) and Faith-Based Organizations (FBOs) when 

directed by the JFC.

Incidental support may be provided to persons not affiliated with the 

Armed Forces during the execution of an authorized mission when 

the following four criteria (known as ―the Four Prong Test‖) are met:

1. The support must be individually and personally requested in an 

emergency situation, whereby the need is immediate, unusual, 

and unplanned.

2. The need must be acute. Acute needs are those which are of 

short duration, prone to rapid deterioration, and in need of urgent 

and immediate care. The necessary provision of ―last rites‖ is the 

clearest, but not the only example of such needs.

3. The requested support must be incapable of being reasonably 

rendered by members of the clergy unaffiliated with the Armed 

Forces. Time, distance, and the state of communications may 

require such a determination to be made on the spot, by the 

chaplain, based on the information available at the time.

4. The support must be actually incidental. Such support incurs no 

incremental monetary cost and does not significantly detract 

from the primary role of the RST.

DoD and National Guard (NG) chaplains are religious ministry 

professionals with training, education, and experience comparable or 
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equivalent to the certifications standards of organizations active in 

disaster response. RST personnel should have training in Crisis 

Intervention Management tools such as Psychological First-Aid, 

Critical Incident Stress Management (CISM), Group Crisis 

Intervention and Disaster Mental Health, and should be thoroughly 

familiar with DoD Directive (DoDD) 6490.5, ―Combat Stress 

Control (CSC) Programs,‖ as well as Field Manual (FM) 4-02.51, 

Chapter 6, ―Traumatic Event Management‖ and Air Force 

Instruction (AFI) 44-153, Traumatic Stress Response.

All of the branches have respective guidance on CSC 

Programs developed from DoDD 6490.5. 

The Army's Program is found in FM 4-02.51, Combat and 

Operational Stress Control. FM 1-05, Religious Support

specifically outlines the use of "Critical Event 

Debriefing" built on CISM. 

The Air Force has AFI 44-153, Traumatic Stress Response. 

The Navy has the Navy Leader's Guide for Managing 

Personnel in Distress.

The Marine Corps has the Leaders Guide for Managing

Marines in Distress.

For additional resources, refer to the webpage 

http://www.pdhealth.mil/op_stress.asp

Training for these programs is available in multiple places, including

NGB Office of the Chaplain (NGB-OC). Service-specific chaplain

training is available at the Armed Forces Chaplaincy Center (the new

Joint Service Chaplain School) at Fort Jackson, South Carolina, where 

all Service chaplain schools are located. Other Crisis Intervention 

Training can be obtained through the International Critical Incident 

Stress Foundation, the American Red Cross (Spiritual & Emotional 

Care), and the National Organization for Victim Assistance Crisis 

Response Team Training. Other training includes Suicide Prevention,

Resilience Training (formerly Battlemind), Landing Gear, and Strong

Bonds.
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During CS operations, military units operate in religiously diverse 

civilian communities, and chaplains must be willing to support and 

serve a religiously diverse, pluralistic population. 

As a primary mission, the RST will support the command to which 

assigned. Pursuant to a commander‘s orders or religious support 

plan, the RST may also be responsible for providing joint area RS to 

units without assigned chaplains and to personnel from low density 

faith groups. A NG RST in State Active Duty or Title 32 status may 

provide RS to Active Component personnel during emergency 

circumstances.

Coordination and collaboration between DoD chaplains and civilian 

clergy, religious ministry professionals, and caregivers enhances 

mission success, the recovery process and situation awareness. 

Response and recovery following disasters and catastrophic events 

will require all local, state, tribal, federal, and non-governmental 

resources working in a cooperative partnership.

The NG, under the command of the governor or The Adjutant 

General (TAG) will generally be the first to respond to a natural or 

man-made disaster. The Joint Force Headquarters (JFHQ)-State 

chaplain is responsible for coordinating RS for NG forces serving in 

State Active Duty or Title 32 status. NG forces coordinate disaster 

response with the NGB-OC. Combatant Command chaplains and 

Joint Task Force (JTF) chaplains will coordinate chaplain activities 

with NGB-OC and involved JFHQ-State chaplains, to the maximum 

extent possible, to ensure collaboration and cooperation. In 

particular, Combatant Command chaplains coordinate chaplain 

response with NGB-OC.

Local, county, and state resources, including National Guard 

forces under Title 32, normally constitute the first line of 

response to crisis management and consequence 

management events.

The JTF chaplain will be responsible for coordinating the activities 

of DoD chaplains, as well as the activities of civilian chaplains, 
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clergy, and religious ministry professionals supporting the DoD 

community, which is normally conducted through civil-military 

operations centers. National coordination efforts are needed to build 

partnerships between DoD chaplains and civilian clergy, religious 

ministry professionals, and other agencies responding to disasters.

Chaplains facilitate a return to normalcy and restoration of trust. 

Military chaplains can work cooperatively and collaboratively to 

build partnerships with Faith-Based Organizations (FBOs) and 

civilian chaplains in order to facilitate the delivery of humanitarian 

care to the effected population. Emergency spiritual and emotional 

care, traumatic incident management, respecting and honoring the 

dead, and other religious activities are critical to sustaining assigned 

personnel and supporting the restoration of a stable society.

Lessons Learned from Hurricane Katrina

1. Units must ensure that adequate ministry services are available to 

their personnel and personnel of supported units.

2. Units must carefully and tactfully avoid requests from other relief 

organizations for ministry services, if supporting such requests will 

drain necessary resources from military personnel in the AO.

3. Behavioral health resources should be made available to military 

personnel involved with recovery of human remains.

4. If behavioral health assets are not sufficient to support personnel 

involved with the recovery of human remains, chaplain/pastoral or 

other counseling resources can and should be used until additional 

assets are available.

5. RSTs should be prepared to deploy during humanitarian relief 

operations and to operate in all conditions in order to provide 

support to their units.

5.11.1 Chaplain Phase 1 - Assessment and Preparation/

Mobilization

 Establish RSTs to provide religious support to authorized DoD 

personnel and their families.

 Plan for operations and secure deployment of liturgical supplies.
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 During mass casualty events, identify coordination and planning 

requirements for chaplain activities in coordination with Medical 

Officer, civilian care providers, the Red Cross, and other civilian 

agencies.

 Coordinate with civilian ministry organizations providing 

support.

 Identify coordination and planning requirements between 

Service Component, National Guard, United States Coast Guard 

(USCG), civilian chaplains and clergy.

 Review Area of Responsibility (AOR) demographics to 

anticipate chaplain faith and denominational balance.

 Plan for religious services.

5.11.2 Chaplain Phase 2 - Deployment 

 Service Components will identify, mobilize and/or deploy 

religious support personnel who meet deployment standards.

 Be aware that DoD Mortuary Affairs personnel may be tasked to 

assist other government agencies in the collection and processing 

of civilian casualties. 

 Maintain situational awareness of stress levels of assigned DoD 

personnel, first responders, and affected civilians, and take 

actions to provide care and mitigate stress.

 Provide stress level situational awareness reports to the 

commander.

 Be prepared to deploy with a minimum of 30 days of chaplain 

supplies.

5.11.3 Chaplain Phase 3 - Support of Civil Authorities

 Be prepared to conduct crisis intervention or CISM 

training/services.

 Chaplains in supervisory positions will coordinate with 

appropriate staff agencies to ensure that subordinate chaplains 

and enlisted religious support personnel receive appropriate 

support and professional guidance.

 When directed, conduct liaison and coordinate activities with 

other units.
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 Coordinate with NGOs and other agency religious personnel.

 Provide religious support to authorized DoD personnel and focus 

on mitigating the impact of traumatic events. 

5.11.4 Chaplain Phase 4 - Re-deployment/Demobilization

 Be prepared to conduct critical event debriefings or other CISM 

requirements.

 RSTs advise the command on indicators, documenting civilian 

community capabilities to resume normal functioning without 

military support. 

 RSTs conduct re-deployment religious support to assigned 

personnel and their families, focusing on reunion and 

reintegration issues with families.

 Prepare AAR comments and document lessons learned.

NOTES
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Medical Officer/Surgeon/Medical Teams

5.12 Medical Officer/Surgeon/Medical Teams

Civilian counterpart(s): Medical Unit Leader (Logistics Section)

Medical personnel face unique challenges in a DSCA environment. 

They must be prepared to deal with both military and civilian 

resources, provide for both military and civilian casualties, and 

ensure paperwork (especially funding information) is accurately 

documented.

When a joint task force is activated, a command surgeon is 

designated from one of the component Services. As stated in Joint 

Publication (JP) 4-02, Health Service Support, a joint force surgeon 

is normally appointed for each Combatant Command, sub-unified 

command, and joint task force. The joint force surgeon reports 

directly to the joint force commander or joint land component 

commander. The joint force surgeon assesses the health service 

support and force health protection requirements and capabilities 

(including public health and medical needs) and provides guidance to 

the Combatant Commander to enhance the effectiveness of medical 

support throughout the area of responsibility. 

Refer to JP 4-02 for a description of responsibilities of the 

Joint Task Force (JTF) surgeon in full spectrum operations. 

A careful understanding of the Medical Rules of Engagement 

(MROE) is also necessary to ensure medical personnel know when 

and how they may or may not treat civilian casualties. Additionally, 

when military personnel are treated by civilians, Title 32 forces 

differ from Title 10 with regard to paperwork and tracking.

DoD medical personnel who have a current, valid, and 

unrestricted license to practice medicine, osteopathic 

medicine, dentistry, or another health profession and who are 

properly licensed under Title 10 USC § 1094(d) may practice 

their profession on non-DoD personnel at any location 

authorized by the SecDef. This authorization is implied when
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the SecDef approves a request for medical units to deploy to 

the scene of a disaster/emergency pursuant to a request for 

assistance from civil authorities. Therefore, pursuant to a 

SecDef-approved mission assignment, DoD medical 

personnel can respond to an off-post disaster/emergency in 

any state, commonwealth, the District of Columbia, or 

territory. He/she would be in the execution of and acting 

within the scope of orders that had been approved by the 

SecDef. DoD Health Care Providers (HCP) will not face 

personal liability if there is a therapeutic misadventure while 

providing medical care and treatment during an emergency 

or disaster.

Both the Federal Torts Claims Act (FTCA) and the Medical 

Malpractice Immunity Act (known as the Gonzalez Act) 

provide protection for DoD HCPs. The Gonzalez Act 

provides that an action under the FTCA is the exclusive 

remedy for individuals seeking damages for alleged medical 

malpractice. Claimant must seek compensation from the U.S. 

Government, and HCPs are immune from liability for care 

given while acting within the scope of their medical duties. 

This includes incidents occurring off-post while treating 

civilian victims during an emergency or disaster.

Many states have a statutory provision that addresses (1) the 

recognition of medical licenses issued by another state or (2) 

the waiver of the state‘s licensure requirements for DoD 

medical personnel who enter the state solely to provide 

medical treatment to civilian victims of an emergency or 

disaster incident. These state statutory provisions either (1) 

automatically recognize a medical license issued by another 

state and allow the person holding such a license to render 

emergency medical aid and treatment; or (2) if ordered by 

the state governor, exempt a medical person who is 

practicing his/her skills or profession during the course of an 

emergency or disaster from the state‘s medical licensure.
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requirement; or (3) allow the State Medical Licensing Board

to suspend for the duration of the emergency or disaster any 

state requirement for a state medical license if the person has 

a valid license issued by another state.

Tort liability and immunity for National Guard medical

personnel are covered by Emergency Management 

Assistance Compact (EMAC) between party states. (See 

Appendix 22 to Annex H to ARNORTH SOP, EMAC and 

Sample National Guard Supplemental MOU. Article VI of 

an EMAC agreement is ―Liability.‖)

5.12.1 Behavioral Health

Strong emotional and physical responses are produced in victims and 

rescuers during disasters. Behavioral health personnel play a vital 

role in any DoD force performing DSCA operations. Behavioral 

health personnel advise leaders on preventive measures and provide 

assistance in addressing combat and operational stress reactions and 

other behavioral health issues. The following are examples of basic 

preventive measures that can be used during disaster response 

operations:

• Providing basic needs for food, shelter, and health care

• Listening to peoples‘ stories

• Keeping families together

• Providing frequent, clear, updated information to victims

• Helping maintain connection with friends and family

• Providing responders with regular communication with family 

members

• Maintaining awareness of the stress levels of others

• Providing responders with a rest area for sleep, hygiene, and 

food that is separate from the public and media

• Insisting on proper sleep, nutrition, and exercise among 

responders

• Not making promises you cannot keep
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Handling human remains is a particularly stressful part of disaster 

relief efforts. Following are examples of coping strategies that can be 

used to minimize combat and operational stress reactions when 

handling human remains:

• Remembering the greater purpose of the work

• Talking with others and listening well

• Using humor to relieve stress (avoid personal or inappropriate 

comments)

• Not focusing on individual victims

• Getting teams together for mutual support and encouragement

• Providing opportunities for voluntary, formal debriefings

Refer to Chapter 8 in the Liaison Officer Toolkit for additional 

information regarding proper handling of human remains. 

For additional information on control of stressors and 

specific leader and individual actions to control stress, see 

Field Manual (FM) 4-02.51, Combat and Operational Stress 

Control and FM 6-22.5, Combat and Operational Stress 

Control Manual for Leaders and Soldiers.

5.12.2 General Health Risks

After a disaster, the civilian population and military personnel may 

be exposed to illnesses spread by contaminated food or drinking 

water, mosquitoes or other insects, and close contact with ill persons.

Health risks rise with:

• Lack of waste disposal

• Contaminated food

• Contaminated water

• Inadequate water for hygiene

• Increased exposure to the heat or cold

In addition to injuries, other medical symptoms may include:

• Fever 

• Difficulty breathing 

• Persistent cough 

• Confusion 
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• Severe vomiting 

• Severe diarrhea 

• Yellowish skin or eyes 

• Unusual bruising or bleeding 

5.12.2.1 Occupational and Environmental Health Risks

Disasters occurring in an urban environment may disrupt water and 

sewage pipelines. Personnel must exercise caution when operating in 

these conditions. 

Exposure to airborne particulates from dust created during recovery 

and reconstruction activities will pose short- and long-term health 

risks. Burning of debris or other combustible materials also will 

contribute to elevated particulate levels. The debris in a collapsed 

building may include asbestos and or lead paint.

To counter the health threat, comprehensive medical surveillance 

activities, occupational and environmental health surveillance 

activities, preventive medicine measures, and field hygiene and 

sanitation are instituted and should receive command emphasis. Field 

hygiene and sanitation combines with personal protective measures, 

to include correctly wearing the uniform and using insect repellent, 

sunscreen, and insect netting. To minimize risk of exposure to 

occupational and environmental health hazards, military personnel 

should:

1. Ensure facilities are properly inspected prior to entry.

2. Identify report and avoid ruptured natural gas lines.

3. Ensure adequate ventilation when using any carbon monoxide 

producing device (preferably outdoors).

4. Use appropriate countermeasures and personal protective 

equipment (including appropriate face masks to avoid inhalation 

of airborne debris).

5. Dispose of waste properly and thus avoid contributing to the 

problem.

6. Avoid contact with any standing water.
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5.12.2.2 Infectious Diseases and Force Health Protection 

Priorities

Inadequate Force Health Protection (FHP) measures will 

seriously jeopardize mission effectiveness.

Units should deploy appropriate preventive medicine personnel and 

equipment. Personnel should observe the following health protection 

guidelines:

1. Consume food, water, and ice only from approved sources.

2. Operate food preparation facilities in accordance with approved 

doctrine.

3. Provide proper hand-washing facilities near all latrines and

dining facilities and enforce their use.

4. Avoid animal contact; no mascots.

5. Report all animal bites and scratches to medical personnel.

6. Avoid skin contact with surface water (rivers, lakes, irrigated 

fields, puddles) that may be contaminated.

7. Avoid bare skin contact with soil that may be contaminated with 

human or animal feces.

8. Have tuberculin skin tests before and after deployment.

9. Maintain at least 72 square feet per person in sleeping quarters 

and sleep head-to-toe.

10. Use insect repellant containing DEET (N, N-Diethyl-metatoluamide) on all exposed skin.

11. Use bed nets in field conditions.

12. Take malaria prevention medicine as directed.

Malaria and dengue are serious diseases spread by bites from 

infected mosquitoes. For up to one year following exposure,

personnel who become ill with a fever and shaking chills 

should seek immediate medical attention.
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5.12.3 Medical Officer Phase 1 - Assessment and Preparation/

Mobilization

 Validate existing credentials. (For more information, see the 

green box in Section 5.12.)

 Be prepared to provide medical doctor or physician‘s assistant 

and one medic for deployment with advance party.

 Plan/conduct medical portion of personnel readiness processing,

to include necessary vaccinations. 

 Reserve component personnel activated for longer than 30 days 

must complete DD Form 2795. Only those activated for 30 days 

or less are exempt from completing the form.

 Locate and obtain pertinent information on medical facilities and 

capabilities in Area of Responsibility (AOR) in coordination 

with A/N/S-4.

 Assist in establishing evacuation policy for patient movement

within the Joint Operations Area (JOA).

 Ensure all military personnel deploy with a 90-day supply of 

individual medication.

 Prepare for medical portion of Joint Reception, Staging, Onward 

movement, and Integration (JRSOI).

 Conduct assessment of health threats of operational significance, 

assess available medical support resources, and plan for 

mitigation of health threats prior to deployment.

 Prepare mass casualty plans.

 Prepare medical annex for the Operation Order (OPORD).

 Obtain adequate resupply support based upon the anticipated 

length of the deployment and Class VIII requirements from the 

supporting medical treatment facility/installation medical supply 

activity.

Estimate medical logistics requirements and preplan Class 

VIII resupply sets and preconfigured push-packages to 

support initial sustainment operations until replenishment 

by line-item requisitioning is established through the

supporting U.S. Army Medical Command
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(USAMEDCOM) master ordering facility/installation 

medical supply activity. During DSCA operations, 

USAMEDCOM is the designated Theater Lead Agent for 

Medical Materiel (TLAMM) to USNORTHCOM. The 

USNORTHCOM commander may designate one of the 

Service components to serve as the Single Integrated 

Medical Logistics Manager (SIMLM). The TLAMM and 

SIMLM work together to develop the Medical Logistics 

(MEDLOG) support plan that synchronizes medical 

requirements and Class VIII distribution to the JTF. Refer 

to JP 4-02 and FM 4-02.1 for additional information.

5.12.4 Medical Officer Phase 2 - Deployment 

 Identify the Commander‘s Critical Information (CCIR)

requirements and provide updates.

 Monitor status of support to military forces, federal, state, tribal, 

and local governments. 

 Consolidate and post locations of closest civilian and/or federal 

medical facilities based on input from FEMA Joint Medical 

Planner.

It is essential that Service personnel know the location of 

hospitals/medical care facilities in order to direct civilian 

casualties. In some cases, a triage/evacuation site may be 

pre-determined to assist rescue personnel in determining 

where to deliver patients.

 Visit medical facilities identified at pre-deployment site to verify 

resources/capabilities, including capabilities on local Medical 

Treatment Facility (MTF) asset list.

 Determine medical workload requirements (patient estimate) 

based on casualty estimate developed by the A/N/S-1 or 

personnel staff officer.

 Monitor the assignment, reassignment, and use of medical 

personnel within the AOR.
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 Recommend task organization of medical elements to satisfy all 

mission requirements.

 Plan and implement medical support operations to ensure the 

provision of appropriate levels of care.

 Prepare medical Situation Reports (SITREP) as directed by 

higher headquarters or as changes to the medical situation 

dictate. 

Medical SITREP Format

1. Current situation (significant changes in operational 

situation/planned or anticipated events next 24 hours)

2. DoD Health Service Support and Force Health Protection

a) DoD Population in Affected Area

b) DoD Population at Risk (PAR)

c) DoD Active Duty Medical Units and Grid Location

d) DoD Reserve Medical Units and Grid Location

3. Medical Operations (Units and Facilities)

a) Bed Availability and Operational Status

b) Workload

c) All Outpatient Visits by Category

d) Class VIII

i) Class VIIIA

ii) Class VIIIB

4. Patient Movement

a) Comments

5. Preventive Medicine – Occupational and Environmental Health

a) Public Health Issues

b) Comments

6. Action Request Form (ARF)/Mission Assignment (MA) Status

a) Comments

7. JTF Surgeon

a) Priorities And Overall

b) Current Issues

c) Future Issues

d) Additional Critical Information Not Addressed in SITREP

e) Comments/Remarks

8. POC for This Report Is (Name/Email/Phone#)
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The complete SITREP document is located at NORADNORTHCOM (N-NC) Surgeon General portal: 

https://operations.noradnorthcom.mil/sites/CommandSpec

ialStaff/SG/MedPlansOpsDiv/WorkSpace/Shared%20Doc

uments/MEDSITREP%20Final%206Apr07.doc

 Issue policies, protocols, and procedures pertaining to eligibility 

for care (medical, dental and veterinary treatment) for sick or 

injured. 

Policies, protocols, and procedures will be in consonance 

with applicable regulations, directives, and instructions,

National Response Framework Emergency Support 

Functions (ESFs) #8 and #11 guidelines, federal law, 

applicable memorandums of understanding or agreement, 

and other related governmental policies.

 Conduct medical surveillance to assess health threats of 

operational significance, assess available medical resources, and 

plan for the mitigation of health threats. Ensure that appropriate 

preventive medicine and environmental health capabilities are 

employed to support casualty prevention and protection of the 

force from health threats.

 Ensure methods are established for disseminating public health 

information and health risk communications information. 

Medical support personnel must also be educated on recognition, 

prevention, and treatment of probable diseases, injuries, and 

exposures.

 Establish MTF/aid station within the AOR to provide medical 

support to Service members and available emergency medical 

support to individuals eligible for care.

 Coordinate with Joint Patient Movement Requirements Center 

for evacuation of patients.

 Coordinate patient reception, tracking, and management to 

nearby National Disaster Medical System (NDMS) hospitals, 
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Veterans Administration hospitals, and DoD MTFs that are 

available.

 Ensure the documentation of medical encounters and health 

hazard exposures as part of the patient‘s individual health record 

(either electronically or on paper medical records).

 Coordinate for reach-back support and staff augmentation as 

required.

 In coordination with local MTFs, determine transition plan for 

disposition/filing of civilian medical records.

 As directed, provide veterinary personnel to assist in the 

evacuation, triage, medical treatment, and temporary sheltering 

of pets, companion animals, and livestock.

 Coordinate with the Armed Services Blood Program Office to 

provide available blood products to DSCA operations in 

coordination with the Department of Health and Human Services 

(HHS).

 Prior to deployment, establish walking blood bank for 

emergency transfusions. 

 Coordinate and monitor patient decontamination operations in 

accordance with FM 4-02.7, Health Service Support in a 

Nuclear, Biological, Chemical Environment.

FM 4-02.7 is a multiservice publication that covers tactics, 

techniques, and procedures for Health Service Support 

(HSS) in a CBRNE environment and has a publication 

number for each of the services. The Army publication 

number is FM 4-02.7, Marine Corps Reference Publication 

(MCRP) 4-11.1F, Navy Tactics, Techniques, and 

Procedures (NTTP) 4-02.7, and Air Force Tactics, 

Techniques, and Procedures (AFTTP) 3-42.3.

5.12.5 Medical Officer Phase 3 - Support of Civil Authorities

 Prepare reporting/regulating instructions to support incident 

relief efforts. 

 Provide medical evacuation support (air and ground) of seriously 

ill or injured patients to locations where hospital care or 
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outpatient services are available. Monitor evacuation 

requirements.

 Provide medical surveillance and laboratory diagnostic and 

confirmatory testing as directed in coordination with the 

Department of HHS.

 Provide available medical teams for casualty clearing/staging 

and other medical support missions as directed. 

 Provide available logistical support to public health/medical 

response operations for distribution to mass care centers and 

medical care locations being operated for incident victims with 

reimbursement to DoD.

Designated DoD Medical Center, MTFs provide support to 

Federal Coordinating Centers (FCCs) under DoD Directive 

6010.22, ―National Disaster Medical System (NDMS).‖ 

Activation allows FCCs to provide treatment to non-DoD 

patients on an emergency basis.

 Provide available veterinary and other military medical 

personnel to assist in activities for the protection of public health 

(such as food, water, waste water and solid waste disposal, 

vectors, hygiene, and other environmental conditions). 

 Coordinate with mortuary affairs personnel (A/N/S-4/8) for 

disposition of human remains.

 Be prepared to assist Non-Governmental Organizations (NGOs)

in organizing blood drives. 

5.12.6 Medical Officer Phase 4 - Re-deployment/Demobilization

 In coordination with local MTFs, transition civilian medical 

records.

 Ensure adequate transfer of logistical support, evacuation 

information, and personnel support prior to transfer of 

responsibility to civilian MTF and redeployment. Provide 

wounded/illness trend patterns as part of the hand-off.

 Assist in preparation of Line of Duty (LOD) determinations.

 Provide follow-up care for injured personnel.
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 Plan and conduct post-deployment health evaluations and 

reassessments.

 Prepare AAR comments and document lessons learned.

Post-Deployment Health Reassessment (PDHRA)

Post screening programs collect and analyze individual-specific data 

related to post-exposure physical and behavioral health status. This 

data is used in:

• Detection of possible adverse behavioral or physical health 

effects related to work or exposure 

• Identification of those needing further medical evaluation and 

treatment 

• Monitoring developing trends and patterns of illness, injury, or 

exposure among workers

The following exposures or other risk factors encountered should be 

considered:

• Type of work performed 

• Dates of deployment 

• Specific locations of work assignments 

• Characteristics of work locations and relationship to known or 

suspected hazardous agents or conditions 

• Specific job tasks and work load at work locations 

• Specific high-risk exposures or conditions at work locations

• Exposure to traumatic events 

• Protective measures used to prevent hazardous exposures (e.g., 

use of Personal Protective Equipment (PPE)) 

• Dates started and finished work at locations listed 

• Shift schedules: hours per day, days per week, rotation 

schedules 
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5.13 Aviation Officer

Civilian counterpart(s): Federal Aviation Administration (FAA) 

personnel; Air Operations/Air Tactical Group (Operations Section)

The aviation staff element is essential to the effective management 

and use of available aviation resources and must ensure that all air 

assets are available based upon the civilian emergency management 

schedule. 

Aviation assets are among the most commonly requested assets in 

support of DSCA operations. The United States Air Force (USAF)

and the Air National Guard (ANG) typically provide validated 

strategic lift capability required (e.g., mass casualty evacuation, 

personnel transportation, and cargo transport). Tactical lift (rotary 

wing) support is provided by all U.S. military forces. Air tasking 

orders for aerial transport, Medical Evacuation (MEDEVAC), and 

Search and Rescue (SAR) should be centrally vetted, tasked, and 

coordinated. In the absence of FAA control of airspace, DoD must be 

prepared to provide airspace management and coordination of both 

military and civilian aircraft. See Chapter 4, ―Aviation‖ in the

Liaison Officer Toolkit for more details on aviation operations.

5.13.1 Aviation Officer Phase 1 - Assessment and Preparation/

Mobilization

 Aviation units coordinate with Army National Guard State 

Aviation Officers for aviation specific planning factors, Landing 

Zone (LZ)/Pickup Zone (PZ), helipads, heliports, airfields, and 

airports. 

5.13.2 Aviation Officer Phase 2 - Deployment 

 Determine bed-down sites, Petroleum, Oil, and Lubricants (POL)

locations, maintenance capabilities; deploy with a minimum of 

30 days of supply of repair parts, and packaged POL products. 

 Track all funding requirements, spares, fuel consumption, and 

hours flown in support of DSCA operations, to include training 

hours and deployment hours. 
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 Use of existing airports, heliports, helipads, and airfields is 

encouraged.

The final decision on the suitability of an LZ/PZ will be 

the discretion of the pilot in command of the aircraft.

 Be prepared to provide LNO to appropriate Joint Field Office 

(JFO) and Joint Force Headquarters (JFHQ).

 Review crew rest policies. 

5.13.3 Aviation Officer Phase 3 - Support of Civil Authorities

 Report all helicopter landing site locations to A/N/S-3.

 Coordinate all aspects of aviation support.

 Maintain records, by mission, of all aviation support provided to 

facilitate reimbursement for flying hours, class IX, and POL.

 Report daily aircraft availability status to higher headquarters.

 Pre-position aircraft as directed.

 Brief troops to be moved. 

 Plan for and provide control and security of LZs and PZs.

 Remind crews to plan for displaced personnel and hazards of 

untrained civilians approaching the aircraft. 

 Plan to provide assistance in the palletizing, tie-down, and hoist 

of unusual items.

 Submit requests, through channels, for special items not organic 

to the unit, e.g., slings, clevis type attachment devices, nets, 

packing and crating materials, medical assistance, and litters.

 Provide adequate identification of LZ and PZ to include lights, 

smoke, or panels if necessary.

 Plan for debris in LZs and/or PZs.

 Report aircraft mishaps to higher headquarters immediately and 

by the fastest means available.

5.13.4 Aviation Officer Phase 4 - Re-deployment/Demobilization

 Prepare AAR comments and document lessons learned.

 Report spares, fuel consumption, and hours flown in support of 

DSCA operations to higher headquarters. 
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5.14 Safety Officer/Non-Commissioned Officer 

Civilian counterpart(s): Safety Officer (Command Staff)

The Safety Officer/Non-Commissioned Officer (NCO) monitors 

incident operations and advises the commander on all matters 

relating to operational safety, including health and safety of unit 

emergency responding personnel. The ultimate responsibility for safe 

conduct of all DSCA operations rests with the unit commander and 

supervisors at all levels. The Safety Officer is, in turn, responsible to 

the commander for the systems and procedures necessary to ensure 

ongoing assessment of hazardous environments, coordination of 

multi-unit safety efforts, and implementation of measures to promote 

emergency responder safety, as well as the general safety of unit 

incident operations. 

Anyone has emergency authority to stop and/or prevent 

unsafe acts during incident operations.

Commanders must ensure coordination with Incident Commanders 

(ICs) and the mutual understanding of capabilities based on DoD 

safety requirements, Occupational Safety and Health Administration 

(OSHA), and National Institute for Occupational Safety and Health 

(NIOSH). All personnel must make a concerted effort to reduce risk 

to the lowest level possible while continuing the mission. Leaders 

will make adjustments to mission execution based on results of the 

risk assessment.

This section provides a suggested checklist of procedures for units 

during deployments on DSCA missions. As part of the mission 

analysis and decision-making process, all leaders, commanders and 

staff, will apply the appropriate service risk management process, 

Composite Risk Management (CRM)/Operational Risk Management 

(ORM), continuously and cyclically and document the process in 

accordance with specific Service requirements. See Chapter 6 for 

more details on safety and Service-specific requirements.
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5.14.1 Phase 1 - Assessment and Preparation/Mobilization

 Establish safety standards, policies, and procedures for 

immediate implementation in a DSCA environment.

 Designate additional duty Safety Officers/NCOs, when not 

authorized full time safety personnel.

 Monitor the National Weather Service (NWS) for information 

regarding the natural disaster to advise the commander of any 

new safety requirements. 

 Ensure unit personnel understand commander‘s safety policies.

 Develop a list of possible Personal Protective Equipment (PPE)

requirements, based on mission, and coordinate with 

installation/home station to ensure PPE is OSHA-compliant. 

 Coordinate with A/N/S-4 for PPE acquisition and replacement 

procedures.

 Organize and request staffing for a tactical Safety Cell with 

deployable personnel to support the DSCA mission.

 Coordinate with A/N/S-6 to provide appropriate communications 

devices for possible safety staffing increase.

 During briefings, note safety concerns, identify hazards for

ongoing operations, and make recommendations for safety.

 Discuss work/rest cycles with commander and develop an 

appropriate work/rest plan.

 Prepare deployment safety program support materials, including

but not limited to accident investigation kit, publications, 

computer, paper, camera, reflective vest, flashlight, tools, hard 

hat, and gloves.

5.14.2 Phase 2 - Deployment Phase

 Integrate support personnel into organization safety program.

 Review deployment operations for unsafe conditions and make 

on-the-spot corrections as necessary.

 Ensure Safety Cell personnel are provided appropriate 

communications devices, computers, and office support.

 Observe deployment operations and advise command on any 

unsafe practices.
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 Observe work/rest cycles to ensure application of command 

policy.

 Ensure leaders have a means to track work/rest cycles

5.14.3 Phase 3 - Support of Civil Authorities

 Establish communications with higher headquarters elements 

including Joint Force Headquarters (JFHQ), Joint Task Force 

(JTF), Joint Force Land Component Command (JFLCC) or Joint 

Force Air Component Command (JFACC), and key federal, 

state, and local safety offices.

 Represent the commander in meetings with officials on matters 

pertaining to safety.

 Review on-going operations and provide on-the-spot corrections 

or recommendations to reduce hazards.

 Implement accident investigation, reporting, and administration 

procedures for accidents and advise commander of any trends.

 Ensure compliance with DoD and Service safety and 

occupational health regulations and other applicable safety 

standards, policies, procedures, and regulations as appropriate. 

 Directly coordinate with higher headquarters for aviation safety, 

arms, ammunition, explosives, petroleum products, radiation, 

and any other hazardous materials.

 Assist the commander in developing, implementing, and 

monitoring air and ground safety programs for accident 

prevention purposes.

 Assist the commander and staff, at all levels, including joint 

forces and supported agencies, in identifying unsafe conditions 

or standards and providing recommendations for correction. 

 Provide input to the commander on potential areas for accidental 

loss.

 Provide appropriate safety training to unit personnel, including 

safety meetings and councils as appropriate.

 Provide hazard reduction recommendations, when appropriate, 

for operations including aviation/airfield, port, rail, re-fuel, 

heavy equipment, and convoy operations.
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 Advise subordinate units regarding CRM/ORM application and 

risk management procedures. 

 Participate in planning and operations meetings:

o Listen to options being considered. If potentially unsafe, 

assist in identifying options, protective actions, or 

alternatives.

o Discuss accidents/injuries to date. Make recommendations 

on preventative or corrective actions.

 Establish Safety Council or meetings when appropriate.

 Coordinate critical incident stress, hazardous materials, and other 

debriefings, as necessary.

 Document all hazards identified on the unit Hazard Inventory 

Log.

 Brief Assistant Safety Officers on the potential hazards, work 

locations, and operational and safety priorities. 

 Organize resources for the most effective operation.

 Investigate accidents that have occurred within incident areas:

o Conduct accident investigations.

o Preserve accident scene for investigation.

o Properly document accident.

o Prepare accident report per agency policy, procedures, and 

direction.

o Recommend corrective actions to commander.

o Track and analyze trends to advise command on accident 

prevention programs.

5.14.4 Phase 4 - Re-Deployment/Demobilization

 Conduct an after-action safety review. 

 Conduct a safety self-assessment.

 Watch assigned unit personnel for signs of stress and task 

saturation that can induce stress during the post-incident time 

frame.

 Hold informal sit-downs with assigned personnel for safety 

program feedback.

 Identify any special safety considerations for the Demobilization

Plan.
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Safety Officer

 Complete all required forms, reports, and other documentation. 

All forms should be maintained in accordance with Service 

requirements and in accordance with unit documentation 

procedures, with courtesy copies to the safety office. 

 Document both safe and unsafe acts, corrective actions taken on 

the scene, accidents or injuries, and ways to improve safety 

response for future DSCA operations.

 Ensure accident reporting requirements were met for any and all 

accidents involving Service personnel.

 Account for all deployed safety section materiel and equipment. 

 Assess equipment usage and list any shortages or recommended 

changes.

 Develop POC list for similar event support.

NOTES
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NORTHCOM CONPLAN 3501-08 Phases

Appendix 5.A: NORTHCOM CONPLAN 3501-08 Phases

The United States Northern Command (USNORTHCOM) Concept 

Plan (CONPLAN) 3501-08, Defense Support of Civil Authorities, 

contains a six-phase plan for DSCA operations described below.

Phase 0, Shape. Phase 0 is continuous situational awareness and 

preparedness. Actions in this phase include interagency coordination, 

planning, identification of gaps, exercises, and public affairs 

outreach. These activities are synchronized through the 

USNORTHCOM Theater Campaign Plan and continue through all 

phases. 

Phase I, Anticipate. Phase I begins with the identification of a 

potential USNORTHCOM DSCA mission, a no-notice event, or 

when directed by the President or Secretary of Defense (SecDef). 

The phase ends when assigned response forces deploy or when the 

determination is made that there is no event requiring DSCA 

response. Phase I success equals deployment of Defense 

Coordinating Officer (DCO)/Defense Coordinating Element (DCE), 

Emergency Preparedness Liaison Officer(s) (EPLO), and other 

selected response forces. These forces will be postured to facilitate 

quick response after coordination with the Primary Agency (PA), 

Federal Coordinating Officer (FCO), Joint Field Office (JFO), and 

coordination with local, state, and tribal officials. 

Phase II, Respond. Phase II begins with the deployment of initial 

Title 10 response capabilities. The phase ends when Title 10 

response forces are ready to conduct operations in the Joint 

Operations Area (JOA). Phase II success equals forces deployed with 

enough capability to support civil authorities in accomplishment of 

the mission. DSCA operations are based on Requests for Assistance 

(RFA) which will be made at different times and for missions that 

will be completed at different times. Consequently, forces will likely 

deploy into and out of the DSCA JOA for the entire length of the 

DSCA operation.
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NORTHCOM CONPLAN 3501-08 Phases

Phase III, Operate. Phase III begins when Title 10 DSCA response 

operations commence and ends when Title 10 forces begin to 

complete Mission Assignments (MAs) and no further requests for 

Department of Defense (DoD) assistance are anticipated from civil 

authorities. Phase III success is achieved when currently deployed 

USNORTHCOM capabilities are sufficient to support civil 

authorities.

Phase IV, Stabilize. Phase IV begins when military and civil 

authorities decide that DoD support will scale down. Phase IV ends 

when USNORTHCOM support is no longer required by civil 

authorities and transition criteria are established. Phase IV success is 

achieved when all operational aspects of MAs are complete.

Phase V, Transition. Phase V begins with the redeployment of 

remaining Title 10 DSCA forces. The phase ends when response 

forces have been relieved, have redeployed, and Operational Control 

(OPCON) is transferred to their respective commands. Phase V 

success is achieved when USNORTHCOM forces have transitioned 

all operations back to civil authorities.
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CHAPTER 6: SAFETY 

This chapter describes safety in the context of a Defense 

Support of Civil Authorities (DSCA) environment. All 

relevant civil and military organizations, local, state, and 

federal, have internal safety and risk management processes 

and procedures. This chapter assists in the identification of 

hazards and describes processes for mitigating risk.

6.1 Introduction

The National Strategy for Homeland Security states:

The assessment and management of risk underlies the full 

spectrum of our homeland security activities....We must 

apply a risk-based framework across all homeland security 

efforts in order to identify and assess potential hazards 

(including their downstream effects), determine what levels 

of relative risk are acceptable, and prioritize and allocate 

resources among all homeland security partners....We as a 

nation must organize and help mature the profession of risk 

management by adopting some risk analysis principles and 

standards, as well as a professional lexicon.

As in all operations, safety and accident prevention during civil 

support operations are critical to mission accomplishment. Training 

and operating to standard are key elements in ensuring safe and 

effective conduct of operations. During DSCA operations it becomes 

even more important for our troops and leaders to address safety and 

standards in order to accomplish assigned tasks. Leaders at all levels, 

Service personnel, and civilians are responsible for safety while 

conducting DSCA operations and activities.

Department of Defense (DoD) Instruction (DoDI) 6055-

series is the basis for DoD Safety and Occupational Health 

Programs. The Army Safety Program is addressed in Army 

Regulation (AR) 385-10, The Army Safety Program and 

Department of Army Pamphlet (DA PAM) 385-10, Army 

Safety Program, and supporting publications. The United 
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States Air Force safety program is documented in Air Force 

Instruction (AFI) 91-301. The United States Navy and 

Marine Corps use the Office of the Chief of Naval 

Operations Instruction (OPNAVINST) 5100 series in 

applying DoDIs. 

Hazard identification, mitigation, and management of risk are key 

factors in safely conducting DSCA operations. The Army teaches 

and uses the Composite Risk Management (CRM) program while the 

other Services use Operational Risk Management (ORM). Both 

programs are used to identify hazards associated with the conduct of 

required operations and to assist in mitigation and management of 

associated risks. Commanders implement both throughout the 

operations process, from beginning to end. 

For more information on CRM/ORM, see Appendix 6.A.

For in-depth guidance on the CRM process, see Army Field 

Manual (FM) 5-19, Composite Risk. Also see FM 5-0.

For other Service guidance on the ORM process, see:

AFI 90-901, Operational Risk Management

Marine Corps Institute (MCI) Operational Risk Management 

OPNAVINST 3500.39B, Operational Risk Management

Occupational Safety and Health Administration (OSHA), Centers for 

Disease Control (CDC), Federal Emergency Management Agency 

(FEMA), READY ARMY, and other U.S. Government websites 

contain excellent safety information to assist responders at all levels 

in identifying hazards and risks to safe mission completion and 

protecting the civilian population. These websites contain 

information for specific disasters to ensure responders at all levels 

have the safety tools to provide support and aid in rapid return to 

normalcy after such incidents. 

During a Department of Homeland Security (DHS)/FEMA disaster 

response, an Incident Action Plan (IAP) identifies the Incident 

Action (IA) Safety Officer. DoD personnel supporting these 
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operations should contact the IA Safety Officer and participate in 

any safety boards or meetings conducted in support of these 

operations.

6.2 Hazards Identification and Mitigation

To identify hazards, leaders should obtain information about the 

characteristics of the specific geographical region and overall effects 

of the disaster. For example, flooding of buildings has significant 

secondary effects in hot, humid environments. Toxic mold and 

fungus thrive in these conditions. Standing, water-damaged 

structures can become uninhabitable for humans but may shelter 

dangerous stray or wild animals, insects, and reptiles. 

Specific types of disasters require specific types of safety equipment. 

For example, safety equipment for disasters triggered by high winds 

and water includes life preservers and other marine-specific safety 

gear, waterproof boots, and special handling equipment for stray 

pets. Engineering safety equipment for assessment of damaged 

infrastructure includes equipment for safe repair of damaged 

electrical facilities, towers, buildings, and bridges.

The work pace in response to disasters and other events is 

demanding, and leaders should ensure Service personnel avoid 

physical exhaustion. Rotating personnel between more demanding 

tasks and less demanding tasks mitigates the accumulation of fatigue. 

Leaders need to establish and enforce viable plans.

6.2.1 Personal Hygiene

Personal hygiene requires special attention. Many natural and 

manmade contaminants pose risks during civil support operations. 

Precautions include providing potable water, sanitary laundry and 

bath facilities, and latrines. Personnel should wash their hands often

and make sure that waste is disposed of properly.

6.2.2 Food Safety

Food and water sources are checked for safety. Contamination may 

come from sources such as extreme heat, chemicals, biohazards, pest 

infestations, smoke, and flooding. 
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6.2.3 Preventable Injuries

Appropriate safety gear can prevent many injuries to the eyes, ears, 

head, hands, back, and feet. When appropriate, personnel should 

wear protective lenses, goggles, or face shields. Leaders should 

enforce the use of hearing protection when personnel are operating 

heavy equipment, generators, or chain saws. Helmets or hard hats 

must be worn in construction areas in accordance with civilian 

requirements. Commanders pay special attention to this requirement 

and consider that combat helmets (such as Kevlar helmets) do not 

provide the same protection as civilian hardhats. 

Personnel should remove rings or other jewelry that conduct 

electricity, may become hooked or snagged, or interact adversely 

with chemicals or heat. Personnel should wear gloves as required and 

use proper lifting techniques and lifting equipment to avoid back 

injuries. They must wear the correct footwear for the job and follow 

preventative measures for trench foot and fungal infections.

6.2.4 Respiratory Hazards 

Respiratory hazards are common in any disaster area. These include 

smoke, ash, molds, various airborne contaminants, toxic chemicals, 

and radiation. Personnel can be exposed to asbestos, carbon 

monoxide, nuisance dust, or other caustic vapors. Qualified 

individuals should conduct tests to identify hazards. When needed, 

personnel must use the appropriate military or civilian gas, mist, 

fume, or dust protective masks to remove airborne toxins. 

Commanders and leaders must understand that current 

Military Over-garment Protective Posture (MOPP)/Joint 

Services Lightweight Integrated Suit Technology (JSLIST)

gear and military protective masks do not provide adequate 

protection against most Toxic Industrial Chemicals and 

Toxic Industrial Materials.

6.2.5 Blood-borne Pathogens and Diseases such as Tetanus 

Everyone involved in disaster response operations must be aware of 

the risk from blood-borne pathogens. At a minimum, personnel must 
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have up-to-date hepatitis and tetanus immunizations and observe 

basic preventive medicine precautions. Personnel should use the 

following equipment whenever required: 

• Latex or rubber gloves

• Over-garments for clothing protection

• Face masks for respiratory protection

• Goggles for eye protection from splashes or spills

• Biohazard bags

6.2.6 Stress

Everyone involved in rescue and recovery operations experiences 

increased stress and anxiety. Medical Combat and Operational Stress 

Control (COSC) teams, chaplains, leaders, and personnel are trained 

to manage stress. Primary stress management support channels for 

civilians include local churches and the American Red Cross. The 

Red Cross has the ability to send stress management teams to help 

citizens affected by the disaster.

For information on control of stressors and for details about 

specific leader and individual actions to control stress, see 

FM 4-02.51, Combat and Operational Stress Control and 

FM 6-22.5, Combat and Operational Stress Control Manual 

for Leaders and Soldiers. For more information on stress 

management, see Sections 5.11 and 5.12. See also Section 

7.2.6 in the Liaison Officer Toolkit.

6.2.7 Animals 

Disaster conditions increase the risk of bites and scratches from 

domestic or wild animals, including venomous snakes and rats. 

Personnel can become infested with lice and fleas. The danger from 

diseases such as rabies increases. Household pets can become more 

aggressive or dangerous than usual. Personnel should take 

precautions to avoid animal and snakebites. Do not taunt, play with, 

or handle animals unless trained and authorized. 
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6.2.8 Biting or Stinging Insects and Spiders

Personnel need to be aware of and protect themselves from 

mosquitoes, ticks, chiggers, ants, venomous spiders, fleas, lice, 

wasps, and bees. Refer to Army Center for Health Promotion and 

Preventive Medicine at http://chppm-www.apgea.army.mil .

6.2.9 Hazardous Plants 

Numerous hazardous plants require special handling and safety 

procedures. Some species of brush, such as oleander, are poisonous. 

Oleander is used as an ornamental plant around parks and residential 

areas. Burning it releases toxic chemicals. Poison ivy and poison oak 

are harmful when touched or burned. Refer to the Army Center for 

Health Promotion and Preventive Medicine website at http://chppmwww.apgea.army.mil . For additional detail, go to http://chppmwww.apgea.army.mil/ento/plant.htm .

Military veterinary services personnel develop a vigorous 

veterinary surveillance program that includes hazardous 

animals and plants, endemic diseases, parasites, suspected 

animal-to-human disease outbreak investigation, animals 

treated, and any other veterinary-related events. See 

Chapter 7 in the Liaison Officer Toolkit.

6.2.10 Electrical Hazards

All electrical transformers pose severe risks. Electrical lines can 

present a lethal shock hazard. To avoid injuries:

• Do not attempt to move transformers during cleanup

• Mark transformers and report locations to the chain-of-command

• Do not touch, work or operate equipment near downed power 

lines; electricity might be restored to downed power lines 

without notice. 

As commercial power is re-supplied, all emergency generators 

should be taken offline. Only qualified utility or engineer personnel 

conduct the changeover. If a downed power line is difficult to see but 

is in a traffic area, clearly mark the area so no one touches the 
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downed wire. Use caution when antennas are near power lines and

avoid erecting antennas near power lines. Identify antennas that may 

fall on power lines or on people and take appropriate action to 

prevent accidents or injury. 

Always assume power lines are live. Remember water (that 

includes snow) and electricity do not mix!

6.2.11 Power Generator Safety

Generator usage during DSCA operations can create special 

concerns. Personnel entering homes and buildings need to be aware 

of the potential carbon monoxide threat posed by generators used

indoors that do not properly vent exhaust outside of an enclosed area. 

Military personnel using generators must give special attention to the 

following: 

• Operation only by trained personnel

• Fueling operation hazards

• Proper grounding and bonding of generators

• Carbon monoxide hazards

• Generator fire hazards and fire protection

• Generator electrical load limits and capacity

• Electrocution hazards, prevention, and first aid

• Military personnel are not permitted to connect military 

generators to civilian infrastructure. A certified civilian 

electrician must be available to connect the power. Care 

must be taken to ensure that power lines are not reenergized by connecting infrastructure to generators.

6.2.12 Handling Contaminated Items

Take precautions when handling and collecting contaminated items. 

A collection site for contaminated items is established. In addition, 

sites are designated for showering and clothing changes before 

moving to non-contaminated areas. For more information, see the 

following websites:

• U.S. Army Maneuver Support Center: www.wood.army.mil
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• U.S. Department of Labor Occupational Safety and Health 

Administration: www.osha.gov

• DoD Chemical, Biological, Radiological and Nuclear Defense 

Information Analysis Center: 

http://www.CBRNEiac.apgea.army.mil

• Center for Disease Control and Prevention: http://www.cdc.gov

6.2.13 Fire

Fires trigger extreme heat, toxic gases, fumes, and toxic dust 

hazards. Most units do not have all the equipment required to fight 

large fires; special breathing and burn prevention equipment is 

required. For further information, refer to Fire Rescue I at 

http://www.firerescue1.com . 

Military Nuclear, Biological and Chemical (NBC) protective 

masks to not prevent smoke inhalation. They are not 

designed for a high-heat environment.

6.2.14 Use of Chain Saws

Chain saws are inherently dangerous. Chain saw safety guidance is 

available through every chain saw manufacturer and the U.S. 

Department of Labor OSHA website, www.osha.gov . Chain saws

require maintenance and prudent use to reduce risk of injury and 

death. Leaders ensure chainsaw operators:

• Receive training before operation, including procedures for chain 

saw use and maintenance and how to ensure cut trees fall safely

• Use Personal Protective Equipment (PPE) including eye 

protection, hearing protection, leg guards, and gloves (adjusted 

according to weather conditions) 

• Check for nails, wire, and other metal objects before cutting

6.2.15 Use of Vehicles and Transportation

Personnel are to drive defensively and remain alert to potential 

hazards. Operators of vehicles should:

• Pair experienced drivers with inexperienced drivers for 

supervision and hands-on training
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• Use experienced drivers in difficult terrain

• Remind drivers to slow down in limited visibility, on rough 

terrain, and during inclement weather

• Secure vehicle antennas to prevent contact with power lines and 

other objects

• Take into account the maximum fording depth for each vehicle 

type, and ensure proper fording equipment and accessories are 

installed before entering water areas (see Appendix 10.A)

• Use ground guides during periods of limited visibility

• Ensure operators are licensed on their vehicle; operators 

designated to transport Hazardous Materials (HAZMAT) and 

ammunition are licensed to load, transport and off-load said 

material

All operators of vehicles should perform:

• Preventive maintenance checks and services, especially under

adverse or unusual conditions

• Special requirements covered in the ―Operating Under Unusual 

Conditions‖ section of their respective operator‘s manual

Leaders should conduct convoy briefings before movement. Leaders 

should ensure all vehicle operators know how to:

• Conduct a physical reconnaissance of the route to avoid hazards;

mark unavoidable hazards on a strip map and include them in the 

convoy briefing

• Reconnoiter the route for bridges or underpasses that might be 

too low for large vehicles

• Access roads, bridges, and overpasses that may not be posted 

with weight or height restrictions

• Reconnoiter routes for hazards below the water line before 

operations begin

• Check water height before driving on submerged surfaces; a

good rule of thumb is not to drive into running water deeper than 

the vehicle axle

Convoys require a safety briefing containing, at a minimum, the 

following:

• Mishap duties and responsibilities
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• Speed limits

• Interval distances

• Mechanical breakdown procedures

• Passenger safety measures

• Visual signals for convoy halt, caution, slow, etc.

• Preplanned rest halts

• Hospital, armory, and operational mission support locations 

identified on a provided strip map as applicable.

Drivers will not operate a vehicle for longer than two hours without a 

rest stop or four hours without relief.

6.2.16 Accident Reporting

All accidents will be reported within 24 hours to the task force safety 

office. At a minimum the following information is provided for each 

accident reported: 

• Name of the person reporting the accident

• Point of contact telephone number

• Unit involved in the accident

• Location of the accident 

• Date and time of the accident 

• Name and rank of personnel involved

• Extent of injuries

• Type of property or equipment damage

• Estimated cost of damage

• Estimated environmental cost

AR 385-10 and DA PAM 385-40, Army Accident 

Investigation and Reporting address accident reporting 

requirements. Accidents meeting the following criteria may 

require more in-depth investigations and/or U.S. Army 

Combat Readiness/Safety Center investigator support: 

• Injury to any military personnel that results in a lost 

workday 

• Estimated damage of $2,000 or more to any military 

property or equipment
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• Non-fatal injury or illness to any civilian resulting from 

military operations that requires either hospitalization of 

24 hours or more or loss of work

• Estimated damage to civilian property of $2,000 or more 

resulting from military operations

6.3 Areas of Special Concern

The following are areas of special concern that may require 

additional/special planning (not all-inclusive):

• Night operations

• Aircraft operations

• Water operations

• Weapons (if necessary, both military use and civilian use)

• Tactical rest policy

• Field heaters and stoves (if applicable)

• Petroleum, Oil, and Lubricants (POL) storage and handling

• Hazardous Materials

• Unexploded munitions (if applicable)

• Hot weather/cold weather operations

6.4 For More Information

U.S. Air Force Safety Center

http://www.afsc.af.mil/

U.S. Army Combat Readiness Safety Center

https://safety.army.mil/

U.S. Navy Safety Center

http://www.safetycenter.navy.mil/index.asp
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Appendix 6.A: Composite Risk Management / Operational Risk 

Management 

Composite Risk Management is the Army‘s primary decisionmaking process for identifying hazards and controlling risks across 

the full spectrum of Army missions, functions, operations, and 

activities.

CRM is a decision-making process used to identify and mitigate 

risks associated with all hazards that have the potential to injure or 

kill personnel, damage or destroy equipment, or otherwise impact 

mission effectiveness. In the past, the Army separated risk into two 

categories, tactical risk and accident risk. While these two areas of 

concern remain, the primary premise of CRM is that it does not

matter where or how the loss occurs, the result is the same—

decreased combat power or mission effectiveness.

Operational Risk Management is used for the same purpose by the 

U.S. Navy, U.S. Marine Corps, and U.S. Air Force,. There may be 

some differences in terminology and verbiage, but the only notable 

difference is the 6 step ORM process used by the Air Force:

1. Identify the hazard

2. Assess the risk

3. Analyze the risk control measure

4. Make risk control decisions

5. Implement risk controls

6. Supervise and review effectiveness of controls

Both processes are intended to be understood and used by all unit 

personnel, military and civilian throughout the planning process and 

operational mission to ensure safe mission accomplishment.

The guiding principles of CRM/ORM are as follows:

1. Integrate CRM into all phases of missions and operations.

Effective CRM requires that the process be integrated into all 

phases of mission or operational planning, preparation, 

execution, and recovery.
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2. Make risk decisions at the appropriate level. As a decisionmaking tool, CRM is only effective when the information is 

passed to the appropriate level of command for decision. 

Commanders are required to establish and publish approval 

authority for decision-making. This may be a separate policy, 

specifically addressed in regulatory guidance, or addressed in the 

commander‘s training guidance. Approval authority for risk 

decision-making is usually based on guidance from higher 

headquarters.

3. Accept no unnecessary risk. Accept no level of risk unless the 

potential gain or benefit outweighs the potential loss. CRM is a 

decision-making tool to assist the commander, leader, or 

individual in identifying, assessing, and controlling risks in order 

to make informed decisions that balance risk costs (losses) 

against mission benefits (potential gains).

4. Apply the process cyclically and continuously. CRM is a 

continuous process applied across the full spectrum of Army 

training and operations, individual and collective day-to-day 

activities and events, and base operations functions. It is a cyclic 

process that is used to continuously identify and assess hazards, 

develop and implement controls, and evaluate outcomes.

5. Do not be risk averse. Identify and control the hazards; 

complete the mission.

Figure 6-1. The 5-Step Risk Management Process
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The five steps in the risk management process:

Step 1‒Identify the hazards

Hazards are the potential sources of danger that could be 

encountered while performing a task or mission on or off duty. There 

are other less obvious hazards that should become apparent during 

planning. Leaders should seek to identify all credible hazards before 

the operation.

Step 2‒Assess the hazards

Identified hazards must be assessed to determine their cumulative 

effect on the mission or objective. Each of the hazards is analyzed to 

determine the probability of its causing a problem and the severity of 

the consequences should such a problem occur. This step concludes 

with a risk assessment that describes the impact of the combined 

hazards. The result is a statement that quantifies the overall risk 

associated with the operation—extremely high, high, moderate, or 

low.

Table 6-1. Risk Assessment Matrix

Step 3‒Develop controls and make risk decisions

Once hazards have been assessed, controls must be developed to 

mitigate the risk. Controls may include rehearsals, use of PPE, 

comprehensive pre-mission briefings and brief backs, review of 
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Standard Operating Procedures (SOPs) and regulations, or a myriad 

of other actions that can be taken to reduce the probability and 

severity of a hazards-associated risk.

Step 4‒Implement controls

The controls established as a result of the first three steps are 

implemented in step four, including leader action to reduce or 

eliminate hazards. Controls may be as substantial as writing an SOP 

or as simple as conducting a short safety briefing. The leader might 

require subordinates to brief back requirements to ensure their 

understanding.

Risk decisions are made at a level of command that corresponds to 

the degree of risk. Commanders shall establish in writing the risk 

acceptance authority levels to be accepted by individuals/leaders 

performing the task. Individuals/leaders will only accept those 

residual risks left after control measures are implemented. 

Guidance should be established determining who makes which risk 

decisions. For example, high-risk squad actions may be elevated to 

the company commander for acceptance or denial. A brigade 

commander may direct that company-level risk decisions be made by 

the company commander if the risk is low, the battalion commander 

if the risk is moderate, and the brigade commander if the risk is high. 

In the case of battalion-level decisions, the chain may go from 

battalion to brigade to division.

Step 5‒Supervise and Evaluate. 

Leaders continuously monitor controls throughout an operation to 

ensure their effectiveness and to modify them as required. Leaders 

responsible for supervising each control should be identified in 

Column 11 of DA Form 7566 (see Figure 6-2).

Leaders should:

• Make on-the-spot corrections and evaluate individual and 

collective performances

• Hold those in charge accountable

• Require that all tasks be performed to applicable environmental 

standards
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Figure 6-2. DA Form 7566
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• Ensure that the after-action review (AAR) process includes 

an evaluation of environmental-related hazards, controls, 

Soldier performance, and leader supervision

• Ensure that environmental lessons learned are developed for 

use in future operations

Each control identified and implemented must be evaluated 

(Column 12 of DA Form 7566) to determine if the control was 

adequate for the associated risk. This evaluation should include 

feedback provided to the Soldiers associated with the risk. For 

Risk Decision Authority, see Figure 6-3.

Figure 6-3. Risk Decision Authorities

Army Training and Doctrine Command (TRADOC)
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NOTES
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Wildland Fires

CHAPTER 7: WILDLAND FIRES

In general two kinds of military support may be provided to 

aid civil authorities in wildland firefighting efforts. Support 

may include aerial fire suppression or ground wildland 

firefighting battalions. Each of these support efforts requires 

training and cannot be performed ad hoc. This chapter details 

the types of military response and describes the authorities 

under which typical support of civil authorities is provided.

7.1 Introduction

A wildland fire is an uncontrolled fire occurring in an area with little 

development with the exception of roads, railroads, power lines, and 

transportation facilities. Structures, if any, are widely scattered. The

uncontrolled fire may require a suppression response. Response can 

be provided under Immediate Response Authority (IRA), a Mutual 

Aid Agreement, and/or a Presidential directive or Secretary of 

Defense (SecDef) approved Mission Assignment (MA)/Defense 

Support of Civil Authorities (DSCA) tasking (see Section 7.3).

―Timeliness and operational readiness is everything to the IC

[Incident Commander]‖—Unit Chief Brad Harris, CAL FIRE 

California Department of Forestry and Fire Protection. Wildland 

fires have the capability to rapidly exceed local, county, tribal and 

state fire suppression capabilities and require a rapid response by 

trained personnel. In a wildland fire scenario, as with all other 

natural disasters or emergencies, commanders at any echelon can 

elect to respond to local authorities requests for support under IRA.

7.2 Disaster-specific Information

7.2.1 Types of Wildland Fires

Wildland fires are different from structural fires. While a 24-hour 

structural fire scenario is a long-term fire fight, wildland fires may 

last for an entire season (months) and are managed like a military 

operation.

Wildland fires are categorized as controlled (prescribed fires) and

uncontrolled. Authorities may deliberately set controlled burns on 
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wildlands to get rid of underbrush and dead timber that has built up 

over many seasons. Controlled burns are not covered in this 

chapter. Uncontrolled fires or wildland fires may become a threat 

and require suppression.

The primary tools used for wildland firefighting on the ground are 

axes, shovels, chainsaws, and bulldozers. Rotary and fixed wing 

aircraft drop water and fire retarding chemicals. Fire suppression 

agencies that own tankers and pumps will use water where available.

7.2.2 Related Disasters

After a significant fire event, the ground will have no supporting 

vegetation to prevent mudslides during seasonal rainy periods. 

Because population centers have encroached upon fire-prone areas, 

mudslides may have a devastating effect on developed properties 

(e.g., Southern California). 

Utilities, especially electrical power companies using hydroelectric 

power to generate electricity, may experience power outages because 

of loss of power infrastructure.

7.2.3 Disaster–related Terminology

In general, there are four types of fires Department of Defense 

(DoD) personnel may encounter during wildland firefighting 

operations:

• Ground Fire‒a fire that consumes organic material beneath the 

surface, such as peat fire

• Creeping Fire‒a fire burning with a low flame and spreading 

slowly

• Surface Fire‒a fire that burns loose debris (dead branches, 

leaves, and low vegetation) on the surface

• Crown Fire‒a fire that advances from top to top of trees or 

shrubs, more or less independent of a surface fire

For a complete glossary of fire terminology, see Appendix 7.A.
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7.2.4 Common Disaster Response Timeline

The timeline of the firefighting effort will be affected by the scale of 

the fire, jurisdiction or location of the fire, and local assets available 

to fight the fire. 

Military personnel are required to complete extensive training before 

they are allowed on a fireline; therefore, the Incident Commander 

must plan for this training prior to military involvement. The state 

will use all available state assets and execute memoranda of 

understanding before requesting any federal military assistance.

7.3 Wildland Firefighting Response Authorities

7.3.1 Immediate Response Authority

IRA authorizes commanders to provide support under three 

conditions: to save lives, prevent human suffering or mitigate great 

property damage. (For more information on IRA, see Chapter 3 and 

Annex A). When local civil authority capabilities are exceeded and a 

request for support occurs, a tactical commander, DoD installation, 

Reserve Center, or National Guard Armory may provide support to 

civil authorities under IRA, if it is determined that excess fire 

suppression capabilities and trained personnel are available. 

7.3.2 Mutual Aid Agreements for Fire Protection

Title 42 United States Code (USC), Section 1856(a), ―Authority To 

Enter Into Reciprocal Agreement; Waiver Of Claims; 

Reimbursement; Ratification of Prior Agreements,‖ and DoD

Instruction (DoDI) 6055.6, ―DoD Fire and Emergency Services 

(F&ES) Program,‖ 21 December 2006, allow for provision of the 

following support:

• Fire fighting personnel, installation aviation assets, and heavy 

equipment

• Emergency services, including basic medical support, basic and 

advanced life support

• Hazardous material containment and confinement

• Special rescue events involving vehicular and water mishaps

• Trench building and confined space extractions
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In addition to IRA, commanders and installations located in areas at 

risk for annual wildland fires are encouraged to enter into Mutual 

Aid Agreements with their local communities. Frank, open and 

honest communication fosters development of long-term 

relationships with the local community in response to natural 

disasters and aids in disaster preparedness. Mutual Aid Agreements 

should, at a minimum, address the following:

• What support is legal and what is not

• Reciprocal funding agreements and resources (Who is paying for 

what?) 

• Point of contact (POC) (Who is POC for civil authorities when 

they want to request support? POC should be a competent 

military authority that is empowered to make a decision.)

• How to initiate a request for support (verbal or written request)

• Detailed training requirements, training venues, and frequency 

that relationships are exercised

• Military and civilian capabilities and limitations; first responders 

(local fire; Emergency Medical Support (EMS)), state, and 

regional emergency response capabilities

• Management of expectations (In general the DoD‘s principal 

mission is providing national defense; DSCA is a secondary 

mission support within a finite military capacity. Primary 

mission support may limit or significantly impact DoD‘s 

flexibility in providing DSCA.)

• Strategy/timeline for transition mission support back to civil 

authorities

All such mutual aid agreements should be reviewed by the Staff 

Judge Advocate (SJA) prior to signature.

7.3.3 Presidential Directive or Secretary of Defense Mission 

Assignment

The Request for Assistance (RFA) and MA process for wildland 

firefighting is covered in Section 7.3.5.5.

7.3.4 State Response

The state will use all available state assets and execute memoranda 

of understanding before requesting any federal military assistance. 
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Wildland fires on state property are primarily fought using state 

resources such as CAL FIRE, a division of the California State 

Department of Forestry. However, federal resources (funding) can be 

requested under the Stafford Act. Generally, the National 

Interagency Fire Center (NIFC) will not be the Primary Agency (PA) 

and will participate only when tasked by the Federal Emergency 

Management Agency (FEMA) in support of state efforts. For 

example, in California, CAL FIRE would become the PA and NIFC 

would respond in a supporting role. If a state requests assistance 

under the Stafford Act and NIFC is not coordinating the effort, 

National Guard personnel will most likely respond.

7.3.5 Federal Response

7.3.5.1 Federal Emergency Management Agency 

FEMA is not responsible for fire suppression. However, during a 

major fire event, FEMA will assist with non-fire disaster-related 

issues such as funding, low-cost loans, civilian evacuation, as well as 

feed, care, and movement of domestic animals.

7.3.5.2 NIFC Response

NIFC, located in Boise, Idaho, is the nation's support center for 

wildland firefighting. NIFC is jointly managed by the Department of 

Interior (DOI) and the United States Department of Agriculture 

(USDA). NIFC is staffed by representatives of ten different federal 

and state agencies and organizations, including the DoD. 

Considerable cooperation and coordination exists among DOI,

USDA, and DoD in the execution firefighting responsibilities.

Fire management agencies include, but are not limited to: 

• Bureau of Land Management 

• National Park Service 

• Bureau of Indian Affairs 

• United States Fish and Wildlife Service 

• United States Forest Service 

• State Forestry agencies

Law enforcement agencies will also be involved.
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7.3.5.3 NIFC DCO

The Region X Defense Coordinating Officer (DCO) acts as the 

primary national DCO for NIFC. However, a Title 10 officer is 

assigned as the NIFC DCO. The NIFC DCO will address only 

firefighting issues and can be activated in conjunction with a FEMA 

DCO. The NIFC DCO will respond and usually operate from the 

National Interagency Coordination Center (NICC) in Boise, Idaho,

while processing RFAs and monitoring DoD support to NIFC. 

7.3.5.4 NIFC Emergency Preparedness Liaison Officer 

DoD provides a full-time Emergency Preparedness Liaison Officer 

(EPLO) to NIFC headquarters. The supported Combatant Command

(United States Northern Command (USNORTHCOM)/United States 

Pacific Command (USPACOM)) may additionally task a DCO to 

support the incident.

7.3.5.5 NIFC Request for Assistance Process

The cycle of DoD response to an RFA is as follows (see Figure 7-1): 

1. The fire event takes place.

2. State or federal officials initiate RFA and send to the Geographic 

Area Coordination Center (GACC). 

3. If GACC cannot fulfill the RFA, GACC will forward it to the 

NICC to pass to NIFC for DoD resources. NIFC coordinates 

RFA with the DCO for validation.

4. DCO validates RFA and sends it to Combatant Commander and 

Joint Director of Military Support (JDOMS).

5. Combatant Commander or JDOMS tasks forces via an Execution 

Order (EXORD) to complete RFA mission. 

6. JDOMS must coordinate RFA with Chairman of the Joint Chiefs 

of Staff (CJCS). 

7. CJCS coordinates RFA with Office of the Secretary of Defense 

(OSD) to validate mission assignment.

8. Joint Staff prepares EXORD/Deployment Order (DEPORD)

tasking Joint Forces Command (JFCOM) with MA.
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Figure 7-1. NIFC Request for Assistance Process
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9. Higher headquarters has Operational Control (OPCON) of forces 

in field and ensures that forces complete RFA mission. 

10. After RFA is complete and incident is controlled, higher 

headquarters releases forces back to home station.

7.3.6 DoD Response

NIFC may request the OSD, Assistant Secretary of Defense for 

Homeland Defense and Americas‘ Security Affairs (ASD

(HD/ASA)), to provide DoD wildland fire emergency assistance to 

federal agencies. Because wildland firefighting is not a statutory 

DoD assigned mission, all support is fully reimbursable under the 

Economy Act. An interagency agreement between DoD, USDA, and 

DOI (2005) provides guidelines, terms, and conditions for this 

support.

DoD routinely provides military personnel, equipment, aircraft, and 

helicopters to support ground and aerial fire suppression efforts. The 

U.S. Air Force and Air National Guard own eight C-130 aircraft 

equipped with aerial suppression systems, owned by the United 

States Forest Service (USFS), called Modular Airborne Fire Fighting 

System (MAFFS). Annually NIFC certifies C-130 and crews and 

aircraft to perform the MAFFS mission. In addition, Army, Navy and 

Marine Corps units geographically located in areas prone to annual 

wildland fires may elect to equip helicopters with fire buckets and 

train crews on the safe operation of equipment in support of military 

installation safety support purposes or in support of local mutual aid 

agreements. NIFC also annually requests DoD personnel to serve as 

ground firefighting crews in support of wildland fires that exceed 

local, state, and regional capabilities.

7.3.6.1 Military Aerial Fire Suppression Capabilities

Air Force Modular Airborne Fire Fighting System 

The MAFFS is a modular unit designed for insertion into modified 

C-130E/H aircraft. The MAFSS is capable of dispersing up to 3,000 

gallons (27,000 pounds) of fire retardant or an equivalent amount of 

water. 
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Figure 7-2. MAFSS Aircraft

The MAFFS, owned and maintained by the USFS, is housed at each 

of the air reserve component flying wings to assist on a regional 

basis in the suppression of forest, range, and wildland fires. The 

MAFFS-II is a replacement system using a single retardant tank and 

nozzle plus a foam tank that will increase the capabilities and reduce 

the logistics trail and amount of post-season corrosion control needed 

for the aircraft.

There are eight MAFFS positioned at three Air National Guard airlift 

wings (California, North Carolina, and Wyoming) and one United 

States Air Force Reserve airlift wing (Colorado). These NIFCcertified aircraft and crews are normally committed to support 

wildland firefighting throughout the fire season, which generally 

runs from May to November. Normally, the Air Force will deploy an 

Aero Expeditionary Group (AEG) to oversee MAFFS operations 

with a small contingent from the FEMA Region X Defense 

Coordinating Element (DCE). 

Helicopter Aerial Fire Suppression

Select units across the Army, Navy, Air Force, and Marine Corps are 

equipped with water buckets to support fire suppression operations.

Buckets can be collapsible or rigid and vary in capacity from 72 to 

2,600 gallons (275 to 9,840 liters). The size of each bucket is 
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determined by the lifting capacity of the helicopter. Extensive

standardized training is required for both helicopter pilots and crew 

chiefs prior to executing water bucket/fire suppression operations. 

U.S. Army

UH-60 Black Hawk

USMC

CH-46 Sea Knight

USMC

CH-53 Super Stallion *

U.S. Army

CH-47 Chinook

*(U.S. Navy version is the MH-53E which is primarily used for Mine 

Warfare and can be configured to support DSCA operations.)

Figure 7-3. Military Helicopters Performing Water Bucket 

Operations

In addition, air-to-ground communications and training issues must 

be addressed through mutual aid agreements or Memoranda of 

Understanding (MOUs) with supported communities; this is due to 

the fact that most military aircraft are not equipped with radios 

capable of operating in the frequency ranges used by civilian first 

responders. Another method to address communication shortfalls is 
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to establish standard operating procedures and rehearse alternative 

methods for civil authorities to identify drop zones such as hovering 

over the location, using a civilian aircraft to lead military aircraft to 

the site, or using civil aircraft to perform airborne air traffic control 

in the fire zone.

Fire Zones are temporary restricted airspace established by civil 

authorities in coordination with the Federal Aviation Administration 

to control the flow of aircraft traffic into and out of a wildland 

firefighting area of operations.

7.3.6.2 Ground Suppression Units

NIFC also requests DoD personnel as ground firefighting hand crews 

when a wildland fire exceeds local, state, and regional capabilities. 

Personnel are provided using a ―Total Force‖ concept—Active Duty, 

Service Reserves, and National Guard. The SecDef approves all 

NIFC requests for ground firefighting crews when sourced with 

Active Duty or Service Reserve forces.

Chairman of the Joint Chiefs of Staff Standing DCSA EXORD, 14 

August 2009, directs the National Guard Bureau to train and employ 

California National Guardsmen in support of a NIFC request for 

ground firefighting support assistance in northern California. 

7.3.6.3 Firefighting Standard Ground Support Request

DoD resources for ground firefighting are normally requested in 

battalion strength, equivalent to twenty-five 20-person crews, plus 

their command and control elements. Each battalion fields 

approximately 550 personnel.

In this chapter, ―battalion‖ will refer to a battalion, a task 

force, or other composite force. When the U.S. Marine Corps

is tasked to provide a ground firefighting battalion, they 

typically provide a Special Purpose, Marine Air-Ground 

Task Force (MAGTF). According to Marine Corps Doctrinal 
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Publication (MCDP) 1-0, a MAGTF is comprised of four 

core elements: a Command Element (CE), a Ground Combat 

Element (GCE), an Aviation Combat Element (ACE), and a 

Logistics Combat Element (LCE). As a modular organization 

the MAGTF is tailorable to each mission through task 

organization.

Unlike other DSCA operations, deployed battalions in wildland 

firefighting missions are authorized to take direction from the IC. As 

always, such tasking cannot conflict with DoD policies and 

priorities. 

For the past two decades, DoD has provided recurring support during 

critical fire seasons. As an example, five battalions were deployed 

nationwide in 2000.

7.3.6.4 Incident Management Support Team 

For ground operations, the DCO will facilitate integration of an 

assigned ground battalion into the incident using the Incident 

Management Support Team (IMT-S) concept. The IMT-S is a 

temporary organization established by the NIFC DCO to coordinate 

set-up of facilities and orientation training of the battalion Tactical 

Operations Center (TOC) staff to enable oversight of wildland fire 

operations. While the NIFC Battalion Military Liaison (BNML) and 

Military Crew Advisors (MCADs) work with the battalion and crews 

on the fireline to ensure they can function in the field, the IMT-S 

provides the same services to the battalion staff. 

The IMT-S will normally arrive at Incident Command Post/Base 

Camp approximately 3 days prior to the arrival of the battalion (with 

Advanced Echelon (ADVON) if assigned) and depart after the 

battalion completes fireline training (about 3-4 days). Once the staff 

is able to function and all facilities for the camp are established, the 

DCO visits the fire camp and discusses withdrawal of the IMT-S. 

When the IC and battalion commander agree, the DCO withdraws 
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the IMT-S from the incident. IMT-S personnel are identified by a red 

name badge they wear in camp. 

7.3.6.5 IMT-S Missions and Tasks

NIFC provides two key personnel, the Agency Representative 

(AREP) and the Facilities Unit Leader (FACL) to assist the battalion 

staff in integrating with the incident management staff. Their 

missions and tasks are detailed in the following paragraphs.

Agency Representative. The mission of the AREP is to ensure the 

battalion staff is battle-tracking, interfaces with the Incident 

Management Staff, and has learned to manage resources in 

association with the mission set. The AREP coordinates with the 

battalion commander, A/N/S-2, and A/N/S-3. In addition, the AREP 

will work any adjustment issues associated with the battalion 

assuming the mission. AREP tasks include:

• Attending critical incident command staff meetings

• Ensuring battalion staff meet incident command counterparts

• Setting up daily conference call between IC, battalion 

commander, and DCO

• Coaching battalion staff to battle-track military firefighting 

crews

• Training the battalion staff to anticipate changes in environment 

and trigger points

• Providing recommendations for optimal TOC radio speaker 

placement

• Ensuring staff is attending appropriate incident command 

meetings

• Attending operations planning and morning briefings

• Conducting public land survey map reading course

• Facilitating map procurement for battalion A/N/S-2

• Coaching chaplain and aid station through set-up and preparation 

for operations tempo changes

• Developing work/rest cycle for battalion

• Briefing previous battalion after action report items

• Meeting with ADVON if necessary at base camp and reviewing 

camp layout
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• Developing IMT-S withdrawal plan for DCO approval

• Ensuring alpha roster/boot sizes are provided to NIFC

• Participating in battalion/ADVON pre-brief

Facilities Unit Leader. The mission of the FACL is to plan for, 

coordinate, monitor, and assist in set-up of the Military Base Camp. 

To do this, the FACL will coordinate with the battalion A/N/S-4, the 

Incident Facility Unit Leader, and the Incident Logistics Section 

Chief. FACL tasks include:

• Developing layout plan of military base camp

Establishing relationship with Incident Management Team 

(IMT) Logistics Section Chief (LSC), IMT FACL, and battalion 

A/N/S-4

• Coordinating set-up plan acceptable to ADVON/battalion 

A/N/S-3 and IMT FACL

• Attending Incident Logistics Section meetings

• Maintaining and briefing status of facility set-up

• Coaching the battalion A/N/S-4 in set-up of military equipment 

cache and equipment issue

• Recommending set-up locations for lighting, food distribution, 

lunches, and dust abatement plans to the battalion A/N/S-4

• Coordinating Army and Air Force Exchange Service (AAFES) 

van arrival time and support requirements

• Assisting contractors as necessary to set up, etc.

• Determining whether battalion A/N/S-4 is able to operate 

independently

• Participating in final withdrawal briefing

• Ensuring battalion boot size list is provided to DCE early in 

deployment process

• Participating in battalion/ADVON pre-brief

7.3.6.6 NIFC Training Personnel

Over the years, NIFC and DoD have developed a mature process for 

training and outfitting military personnel for wildland firefighting 

operations. The following sections outline training and equipping of 

DoD personnel and sets expectations for their operation in the field.
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The positions listed in the following paragraphs are specific to NIFC. 

When wildland firefighter training is conducted under the Stafford 

Act or State Active Duty, state agencies may have equivalent 

positions.

Battalion Military Liaison. The BNML is attached to the battalion 

tasked with wildland fire suppression. The BNML reports to the 

military installation and interfaces with the Battalion Commander 

and the Training Coordinator. Upon completion of classroom 

training, the BNML deploys with the battalion to the incident and is 

responsible to the Incident Commander and the Battalion 

Commander after arriving at the incident.

Battalion Military Liaison-Deputy. The BNML-Deputy is 

responsible to the BNML throughout the assignment and will assume 

duties and responsibilities of the BNML in his/her absence. The 

BNML-Deputy acts as a staff advisory leader providing guidance to 

the battalion staff and assists the battalion A/N/S-3 and/or Executive 

Officer (XO). 

Strike Team Leader/Military. The Strike Team Leader/Military 

(STLM) acts as an advisory leader to provide guidance to a 

company/battery/troop commander who has been tasked to perform 

wildland fire suppression. The STLM is attached to, and travels with, 

a company/battery/troop. Once at the incident, the STLM works 

through the Operations Section of the Incident Command. 

Military Crew Advisor. MCADs are assigned to the battalion to act 

as instructors/advisors during classroom/field training and wildland 

fire suppression. They provide advice, guidance through Officers and

Non-Commissioned Officers (NCOs), and are supervisors of safety 

for the duration of the military tour.

7.3.6.7 Training Requirements for Wildland Firefighting

A half-day of classroom orientation and training will be provided at 

the military installation, and field training for ground troops will take 

place at the incident. Training materials and supplies will be shipped 

to the installation and arrive with the Training Cadre. See 
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Assessment and Preparation/Mobilization Section 7.4.1 for further 

details.

7.3.6.8 NIFC Classroom Training

The following topics are included in the Military Wildland Fire 

Suppression Training package:

• Fire Situation

• Fire Organization

• Fire Terminology

• Introduction to Hand-tools

• Fire Behavior

• Fireline Safety

• Fire Shelter

• Wrap Up

7.3.6.9 NIFC Field Training

Field training at the incident consists of fire suppression methods and 

procedures and takes place, at a minimum, for two days. The 

assigned MCADs, military Officers in Charge (OIC), and BNML 

will determine when military crews are to be incorporated into the 

suppression organization. Each MCAD, OIC, and BNML will use 

the MCAD Checklist as an aid in determining readiness. The BNML 

will report readiness to the IC. 

Field training includes the following topics:

• Reinforcement of material learned in the classroom as well as 

on-the-job training

• Watch Out Situations and Standard Firefighting Orders related to 

specific conditions at the fire location

• Personal Protective Equipment (PPE)

• Use, transportation, and maintenance of tools

• Line construction techniques and proper use of appropriate handtools

• Crew coordination techniques

• Fireline safety

• Securing the control line and mop-up
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Figure 7-4. Military Deployment Timeline
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States will be required to provide training and PPE to 

National Guard personnel during the training period, much 

like the process NIFC uses. Although this training will vary 

from state to state, most use a variant of the NIFC model.

Training of fixed and rotary wing aircraft crews is outside 

the scope of this handbook. For information, go to 

https://www.iat.gov/ and http://www.nifc.gov/aviation.htm

7.3.6.10 Equipment and Services

The following equipment and services will be provided by NIFC 

through the BNML. States may or may not provide these. Coordinate 

with the IC Logistics Liaison for the state. A detailed Suggested 

Individual Equipment Matrix is located in Annex C.

For each military individual, the following PPE is provided:

• Fire resistant shirts* (2 each)

• Fire resistant pants* (2 each)

• Fire shelter with carrying case (1 each)

• Hard hat (1 each)

• Safety glasses (1 each)

• Headlamp with batteries (1 each)

• Gloves (1 pair)

• Flat file and handle (for tool sharpening) (1 each)

• 1-quart canteens without covers (2 each) **

• Sleeping bag (1 each)

• Sleeping pad (1 each)

• Firefighter web gear/day pack** (1 each)

• Boots (1 pair) provided by the incident 

 * Exchanges for wrong sizes will occur at the incident.

 ** Limited availability. Determination is made at time of order.

NIFC provides boots for firefighting missions. 

Standard military boots cannot be worn to fight 

fires.
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 The U.S. Forest Service has tested and certified, with 

DoD concurrence, the combat, leather speed-lace boot 

for fireline use.

 Boots with synthetic materials are not acceptable. 

 Any commercially procured boots must be a minimum 

of full leather 8‖ high uppers, Vibram or similar lugged 

stitched sole.

 Steel-toed boots are not acceptable. Personnel may 

experience increased burn potential with steel-toed 

boots.

The agency will replace only boots damaged on the fire 

assignment which are unacceptable for military use. The 

determination of serviceable boots will be made by the 

military chain-of-command.

NOTE: Because these boots will not be broken in prior to 

deployment, personnel may experience a significant 

increase in blisters. Plan accordingly.

Other equipment and services provided by NIFC include:

• Separate catering services—meals (Class I) provided upon 

arrival at incident through return to home station

• Separate showering and shaving facilities—ratio of one wash 

basin/mirror for each seven military personnel

• Laundry service 

• Daily mail pickup—United States Postal Service mail address 

provided for correspondence with unit personnel

• Ground transportation from closest Air Port of Debarkation 

(APOD) to the incident and return to closest Air Port of 

Embarkation (APOE) upon completion of mission; military may 

choose to provide ground transportation if incident is near 

battalion‘s home installation

• Separate camp site established near Incident Base Camp with 

minimum of 10 acres of camp area for each battalion

• Tools and equipment and procedures for daily maintenance

• Transportation from camp to the incident and return for the 

duration of the assignment
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• Vehicle for military and civilian command and control use

• Fuel for military vehicles; procedures for obtaining fuel to be 

established with the IC staff

• Maps

• Petroleum, Oil and Lubricants (POL)

• Command/tactical radio kits (80 programmable radios per 

battalion)

• Cellular telephones provided on a case-by-case basis

7.4 Planning Factors

In addition to all-hazards planning factors in Chapter 5, the following 

planning factors are specific to wildland firefighting.

Title 10 and Title 32 military personnel deployed under 

USNORTHCOM should take time to read the NIFC Military 

Use Handbook which can be found at: 

http://www.nifc.gov/nicc/predictive/intelligence/military/Mil

itary_Use_Handbook_2006_2.pdf

7.4.1 Phase 1 - Assessment and Preparation/Mobilization

 Become familiar with Incident Command System (ICS)

organizational structure and understand dual command and 

control organizations.

There will be a dual command and control organizational

structure—military and ICS (civilian). The IC directs 

military crews through the military chain-of-command. The 

IMT provides specific work assignments and on-the-line 

guidance.

 Review the IAP. The IAP is a tactical plan and each Incident 

Management Team member has specific implementation 

responsibilities. 

 Obtain copies of the Fireline Handbook and issue them to your 

staff officers. This handbook may be obtained at: 

www.nwcg.gov/pms/pubs/410-1/410-1.pdf
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 Plan for pre-deployment training personnel. One BNML, one 

Deputy BNML, 6 STLMs, and 26 MCADs will be assigned to 

the battalion and will arrive prior to deployment to conduct 

training. The BNML is the battalion commander‘s link to the IC.

 Training materials and supplies will be shipped to the installation 

with the training cadre. Expect arrival of the following training 

materials per battalion:

o 80 books National Fire Equipment System (NFES) 0065 

Fireline Handbook

o 80 each NFES 1077 Incident Response Pocket Guide

o 80 each NFES 1570 Your Fire Shelter

o 800 each NFES 2243 Fireline Safety Reference

o 8 packages NFES 2388 Standard Fire Order/Situation decal

o 8 packages NFES 2389 Standard Fire Order/Situation card

o 8 packages NFES 2397 Lookouts, Communications, Escape 

Routes and Safety Zones (LCES) decals

o 80 each NFES 2407 Shelter, fire w/case, for ―PRACTICE 

ONLY‖

 Provide the following facilities and equipment for the training 

cadre at the military installation:

o Eight classrooms

o Dining facilities for MCADs while on base

o Transportation (typically by military bus) for MCADs from 

the lodging site (near, but off the installation) to military 

dining facilities and classrooms

o Telephone and facsimile communications needs for the 

training cadre and the BNML

MCADs are integrated into the battalion at the company/battery/

troop and platoon/crew levels and will perform as a part of the 

Operations Section once the military crews are judged ready for 

fireline assignments.

 Work with the BNML on crew requirements. 

 Coordinate with the BNML for postal address of incident 

location.

 Coordinate with BNML for points of contact for weather, road 

conditions, and other local information sources important to the 

command.
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 Coordinate with BNML to acquire relevant maps and/or satellite 

imagery.

 Prior to deployment, determine needed logistical support items 

and coordinate with the BNML.

 Work with the BNML to establish issue records concerning 

civilian equipment issued by NIFC or the state requiring support.

 Determine locations of nearest civilian or federal hospitals and 

evacuation procedures used by the IC if DoD personnel are 

injured and need to be evacuated.

 Maintain contact with your Incident Command Liaison Officer

(LNO). 

 Expect coordination with the IC staff at the earliest opportunity 

regarding sustainment requirements.

 Determine military vehicle restrictions.

 Establish policies and procedures for sick call transportation in 

coordination with the A/N/S-1. 

 Determine boot sizes for battalion personnel and forward a list to 

DCO with alpha roster of deploying personnel.

7.4.2 Phase 2 - Deployment

 Each activated battalion should deploy with an attached Public 

Affairs Detachment (PAD), a maximum of five personnel. 

Deployed PADs will conduct joint, coordinated public affairs 

activities with land management incident information personnel 

on the ground and coordinate all media needs with the host 

agency Chief, Office of External Affairs at NIFC or the state.

 Consult with the ICS LNO to coordinate meeting times and 

information exchange. 

7.4.3 Phase 3 - Support of Civil Authorities

 Carrying plenty of water is critical and units cannot rely on local

water supply. Personnel should fill canteens at established 

potable water supplies, not at a wash/shower facility.

 Activated units can be reassigned within or to another 

geographic area(s) if situations warrant, unless preempted by a 

priority defense mission.
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 Morale, Welfare, Recreation (MWR) equipment, computers, 

email, and availability and number of telephones vary by 

incident and location and cannot be guaranteed. 

 Be prepared to coordinate with the local American Red Cross 

(ARC) for operational assistance.

Support to the ARC is authorized at the installation level as 

a special exception under DoD Directive (DoDD) 1330.5, 

―American National Red Cross.‖ This allows DoD 

installations and units to support the ARC with 

warehousing, transportation, communications, and office 

spaces. 

 Document all agreements made between the IC and the 

DCO/Joint Force Headquarters (JFHQ). Distribute copies to both 

civilian and military personnel in a timely manner.

 Coordinate with BNML on camp security issues.

 Rules for the camp will be established and procedures 

communicated through the BNML. 

 Develop a PPE exchange policy with IC staff. Daily exchanges 

of equipment can be overwhelming if this is not done correctly.

 Issue tools and replacement PPE in coordination with the IC 

staff.

 Medical teams should plan for a high blister rate due to new 

boots issued prior to deployment.

 Communications requirements for all military command and 

control will be handled by the military.

Military communications equipment is not interoperable with 

civilian authority, NIFC, and most state communication 

equipment. Radios should operate on 700 Megahertz (MHz)

and 800 MHz bandwidths. 

 Coordinate frequencies with BNML or his/her communication 

representative. 
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 Military requests for phone lines will often exceed local 

capabilities. Telephone needs should be addressed with the 

BNML or his/her designated representative.

 Communications requests supplied by the incident will be 

ordered through the normal incident ordering system. The 

BNML should provide this process.

 Command/tactical radio kits, including 80 programmable radios,

will be provided by NIFC to each battalion. State radios are 

issued on a case-by-case basis. 

 Cellular telephones may be provided on a case-by-case basis.

 All Public Affairs activities will be in accordance with fire 

management agency and DoD directives, unless specifically 

stated otherwise.

 The NIFC Office of External Affairs staff, through the National 

Fire Information Center at NIFC, will disseminate national 

interagency fire and incident information and coordinate incident 

information activities with all civilian and military agencies 

involved.

All deployable PAD members will attend firefighter training 

at the installation.

7.4.4 Phase 4 - Redeployment/Demobilization

 Demobilization procedures will be accomplished through normal 

channels. The National Interagency Coordination Center,

located at NIFC, will give the battalion a lead time of 72 hours 

prior to the release of military firefighters. State timelines may 

differ.

 All tools, PPE, and other issued firefighting equipment except 

boots must be collected at the incident prior to demobilization.

 Turn in all receipts and vouchers to the DCO/JFHQ upon return 

to home station. This is a timely issue and critical for 

reimbursement to DoD.
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7.5 Additional Information 

For additional information once deployment notification is received, 

contact the Military Liaison Officer at the National Interagency 

Coordination Center, located at NIFC, Boise, Idaho, (208) 387-5815.

NIFC Military Handbook

http://www.nifc.gov/nicc/predictive/intelligence/military/Military_U

se_Handbook_2006_2.pdf

Fireline Handbook 

www.nwcg.gov/pms/pubs/410-1/410-1.pdf

Aviation information

https://www.iat.gov/

http://www.nifc.gov/aviation.htm

InciWeb (an interagency all-risk incident web information 

management system provided by the United States Forest Service)

http://www.inciweb.org
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Appendix 7.A: Abridged Glossary of Firefighting Terms from 

the Fireline Handbook – January 1998

ANCHOR POINT: An advantageous location, usually a barrier to fire 

spread, from which to start constructing a fireline. The anchor point is used 

to minimize the chance of being flanked by the fire while the line is being 

constructed.

BACKFIRE: A fire set along the inner edge of a fireline to consume the 

fuel in the path of a wildland fire and/or change the direction or force of the 

fire‘s convection column.

BARRIER: Any obstruction to the spread of fire, typically an area or strip 

devoid of combustible fuel.

BLOWUP: Sudden increase in fireline intensity or rate of spread of a fire 

sufficient to preclude direct control or to upset existing suppression plans; 

often accompanied by violent convection and may have other characteristics 

of a firestorm.

BURN OUT: Setting fire inside a control line to consume fuel between the 

edge of the fire and the control line.

BURNING PERIOD: The part of each 24-hour period when fires spread 

most rapidly; typically from 10:00 AM to sundown.

CLOSED AREA: Area in which specified activities or entry are 

temporarily restricted to reduce risk of human-caused fires.

CLOSURE: Legal restriction, but not necessarily elimination, of specified 

activities such as smoking, camping, or entry that might cause fires in a 

given area.

COMPLEX: Two or more individual incidents located in the same general 

area which are assigned to a single Incident Commander or Unified 

Command.

CONTAIN A FIRE: A moderately aggressive wildland fire suppression 

strategy which can be expected to keep the fire within established 

boundaries of constructed firelines under prevailing conditions.

CONTROL LINE: An inclusive term for all constructed or natural barriers 

and treated fire edges used to control a fire.

COYOTE TACTICS: A progressive line construction duty involving selfsufficient crews which build fireline until the end of the operational period, 
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remain at or near the point while off duty, and begin building fireline again 

the next operational period where they left off.

CREEPING FIRE: A fire burning with a low flame and spreading slowly.

CROWN FIRE: A fire that advances from top to top of trees or shrubs, 

more or less independent of a surface fire. Crown fires are sometimes 

classed as running or dependent to distinguish the degree of independence 

from the surface fire.

DIRECT ATTACK: Any treatment applied directly to burning fuel such as 

wetting, smothering, or chemically quenching the fire, or by physically 

separating the burning from unburned fuel.

DIVISION: Used to divide an incident into geographical areas of operation. 

Divisions are established when the number of resources exceeds the spanof-control of the operations chief. A division is located with the Incident 

Command System organization between the branch and the task force/strike 

team.

DOZER LINE: Fireline constructed by the front blade of a bulldozer.

ENGINE: Any ground vehicle providing specified levels of pumping, 

water, and hose capacity, but with less than the specified level of personnel.

ESCAPED FIRE: A fire which has exceeded or is expected to exceed 

initial attack capabilities or prescription.

EXTENDED ATTACK: Situation in which a fire cannot be controlled by 

initial attack resources within a reasonable period of time. Committing 

additional resources within 24 hours after commencing suppression action 

will usually control the fire.

FIRE EDGE: The boundary of a fire at a given moment.

FIRE EFFECTS: The physical, biological, and ecological impacts of fire 

on the environment.

FIRE RETARDANT: Any substance (except plain water) that by chemical 

or physical actions reduces flammability of fuels or slows their rate of 

combustion.

FIRE SHELTER: An aluminized tent offering protection by reflecting 

radiant heat and providing a volume of breathable air in a fire entrapment 

situation. Fire shelters should only be used in life threatening situations as a 

last resort.
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FIREBREAK: A natural or constructed barrier used to stop or check fires 

that may occur, or to provide a control line from which to work.

FIRELINE: The part of a control line that is scraped or dug to mineral soil. 

Also called fire trail.

FLANKS OF A FIRE: The parts of a fire‘s spread perimeter that are 

roughly parallel to the main direction of spread.

FLARE-UP: Any sudden acceleration in rate of spread or intensification of 

the fire. Unlike blowup, a flare-up is of relatively short duration and does 

not radically change existing control plans.

FLASH FUELS: Fuels such as grass, leaves, draped pine needles, fern, tree 

moss, and some kinds of slash, which ignite readily and are consumed 

rapidly when dry.

GROUND FIRE: Fire that consumes the organic material beneath the 

surface litter ground, such as peat fire.

HAND CREW: A number of individuals that have been organized and 

trained and are supervised principally for operational assignments on an 

incident.

HEAD OF A FIRE: The most rapidly spreading portion of a fire‘s 

perimeter, usually to the leeward or up slope.

HEAVY FUELS: Fuels of large diameter such as snags, logs, and large 

limb wood, which ignite and are consumed more slowly than flash fuels.

HELISPOT: A natural or improved takeoff and landing area intended for 

temporary or occasional helicopter use.

HOT SPOT: A particularly active part of a fire.

INCIDENT: An occurrence, either human-caused or natural phenomena, 

that requires action or support by emergency service personnel to prevent or 

minimize loss of life or damage to property and/or natural resources.

INCIDENT COMMAND POST (ICP): Location at which primary 

command functions are executed. The ICP may be collocated with the 

incident base or other incident facilities.

INDIRECT ATTACK: A method of suppression in which the control line is 

located some considerable distance away from the fire‘s active edge; 

generally done in the case of a fast-spreading or high-intensity fire and to 
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use natural or constructed firebreaks, fuel breaks, and favorable breaks in 

the topography. The intervening fuel is usually backfired, but occasionally 

the main fire is allowed to burn to the line, depending on conditions.

INFRARED: A heat detection system used for fire detection, mapping, and 

hotspot identification.

INITIAL ATTACK: The actions taken by the first resources to arrive at a 

wildland fire to protect lives and property and prevent further extension of 

the fire.

MOP-UP: Extinguishing or removing burning material near control lines, 

felling snags, and trenching logs to prevent rolling after an area has burned, 

to make a fire safe, or to reduce residual smoke.

PATROL: (1) To travel over a given route to prevent, detect, and suppress 

fires; (2) To go back and forth vigilantly over a length of control line during 

and/or after construction to prevent breakovers; (3) A person or group of 

persons who carry out patrol actions.

REBURN: (1) Repeat burning of an area over which a fire has previously 

passed but left fuel that later ignites when burning conditions are more 

favorable; (2) An area that has re-burned.

SAFETY ZONE: An area cleared of flammable material used for escape in 

the event the line is outflanked or in case a spot fire causes fuels outside the 

control line to render the line unsafe. In firing operations, crews progress to 

maintain a safety zone close at hand, thus allowing the fuels inside the 

control line to be consumed before going ahead. Safety zones may also be 

constructed as integral parts of fuel breaks. They are greatly enlarged areas 

which can be used with relative safety by firefighters and their equipment in 

the event of blowup in the vicinity.

SECONDARY LINE: Any fireline constructed at a distance from the fire 

perimeter concurrently with or after a line already constructed on or near to 

the perimeter of the fire; generally constructed as an insurance measure in 

case the fire escapes control by the primary line.

SLASH: Debris resulting from such natural events as wind, fire, or snow 

breakage, or such human activities as road construction, logging, pruning, 

thinning, or brush cutting. It includes logs, chunks, bark, branches, stumps, 

and broken under-story trees or brush.

SMOLDERING: A fire burning without flame and barely spreading.
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SPOT FIRES: Fire ignited outside the perimeter of the main fire by a 

firebrand.

SPOTTING: Behavior of a fire producing sparks or embers that are carried 

by the wind and which start new fires beyond the zone of direct ignition by 

the main fire.

SURFACE FIRE: Fire that burns loose debris (dead branches, leaves, and 

low vegetation) on the surface.

WATER TENDER: Any ground vehicle capable of transporting specified 

quantities of water.

WILDLAND: An area in which development is essentially nonexistent, 

except for roads, railroads, power lines, and similar transportation facilities. 

Structures, if any, are widely scattered.

WILDLAND FIRE: A fire occurring on wildland that is not meeting 

management objectives and thus requires a suppression response.
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CHAPTER 8: HURRICANE AND TORNADO

This chapter is a compilation of information about tropical 

cyclones (hurricanes) and tornadoes. It presents important 

information about the formation and construction of these 

storms, useful information for responding to storm events,

and safety concerns. Also included are medical 

considerations, mission sets, and planning factors. As 

hurricanes and tornadoes can cause area flooding, personnel

should also review Chapter 10.

8.1 Introduction 

Tropical cyclone is the generic term for a low pressure system that 

generally forms in the tropics. Tropical cyclones are referred to as 

hurricanes in the Northern Hemisphere east of the International 

Dateline to the Greenwich Meridian, and as typhoons in the Pacific 

north of the Equator and west of the International Dateline. Tropical 

cyclones are accompanied by thunderstorms and, in the Northern 

Hemisphere, a counterclockwise circulation of winds near the 

Earth‘s surface. 

A tornado is also a type of cyclone. A tornado is a violently rotating 

column of air in contact with the ground (or surface of a body of 

water), either pendant from or underneath a cumuliform cloud. It is

often (but not always) visible as a funnel cloud. For a vortex to be 

classified as a tornado, it must be in contact with both the ground and 

the cloud base. ―Tornado‖ refers to the vortex of wind, not the 

condensation cloud. 

8.2 Disaster-specific Information

8.2.1 Hurricanes

Hurricanes form over warm waters from pre-existing disturbances. 

These disturbances typically emerge every three or four days from 

the coast of Africa as ―tropical waves‖ that consist of unsettled 

weather. Hurricanes can also form from the trailing ends of cold 

fronts and occasionally from upper-level low pressure areas. 
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Typical hurricanes are about 300 miles wide, although they can vary 

considerably. Size is not necessarily an indication of hurricane 

intensity. The destructive winds and rains of a hurricane cover a 

wide swath, with hurricane-force winds extending outward to about 

25 miles from the storm center of a small hurricane and to more than 

150 miles for a large one. The area over which tropical storm-force 

winds occur is even greater, ranging as far out as almost 300 miles 

from the eye of a large hurricane. 

Generally, the right side of a hurricane (relative to the direction it is 

traveling) is the most dangerous part of the storm because of the 

additive effect of hurricane wind speed and speed of the larger 

atmosphere flow (the steering winds). Increased winds on the right 

side increase the storm surge.

Hurricanes are often accompanied by flooding. Personnel 

supporting hurricane disaster relief operations should be 

familiar with the information contained in Chapter 10, 

―Floods.‖

8.2.1.1 Formation

The process by which a hurricane forms and subsequently 

strengthens depends on at least three conditions:

• A pre-existing disturbance (a low pressure area) with 

thunderstorms

• Warm ocean temperatures (at least 80 degrees) to a depth of about 

150 feet

• Light upper level winds that do not change much in direction and 

speed throughout the depth of the atmosphere (low wind shear)

Heat and energy for the storm are gathered by the disturbance 

through contact with warm ocean waters. Winds near the ocean 

surface spiral into the disturbance‘s low pressure area. Warm ocean 

waters add moisture and heat to the air, which rises. As the moisture 

condenses into drops, more heat is released, contributing additional 

energy to power the storm. Bands of thunderstorms form, and the 

storm‘s cloud tops rise higher into the atmosphere. If winds at these 
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high levels remain relatively light (little or no wind shear), the storm 

can remain intact and continue to strengthen.

8.2.1.2 Common Hurricane Timeline

In its early stages, the weather system appears on the satellite image 

as a relatively unorganized cluster of thunderstorms. If weather and 

ocean conditions continue to be favorable for system development, 

the system can strengthen and become a tropical depression (winds 

less than 38 miles per hour (mph)) At this point, the storm begins to 

take on the familiar spiral appearance due to the flow of winds and 

rotation of the Earth.

If the storm continues to strengthen to tropical storm status (winds 

39 to 73 mph), the bands of thunderstorms contribute additional heat 

and moisture to the storm. The storm becomes a hurricane when 

winds reach a minimum of 74 mph. At this time, the cloud-free 

hurricane eye typically forms as rapidly sinking air at the center dries 

and warms the area. During their life span, hurricanes can last for 

more than two weeks over the ocean and can travel up the entire east 

coast of the United States.

Just as many factors contribute to the formation of a hurricane, there 

are many reasons why a hurricane begins to decay. Wind shear can 

tear the hurricane apart. Moving over cooler water or drier areas can 

lead to weakening as well. Landfall typically shuts off the 

hurricane‘s main moisture source. Surface circulation can be reduced 

by friction as it passes over land. Generally, a weakening hurricane 

or tropical cyclone can re-intensify if it moves into a more favorable 

region or interacts with mid-latitude frontal systems.

Hurricanes are often accompanied by a pre-landfall Presidential 

Declaration of Emergency. The Federal Emergency Management

Agency (FEMA) issued interim policy guidance on June 9, 2006, to 

clarify the circumstances for which a requesting state will be 

considered for Presidential emergency declaration in advance of a 

hurricane or typhoon. Only the President can decide to make 

emergency and major disaster declarations. By making a pre-landfall 
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emergency disaster declaration, the President is in no way obligated 

to either approve or disapprove any declaration request.

Hurricane/Typhoon Pre-Landfall Criteria

Certain criteria must be met for a pre-landfall emergency 

declaration to be considered. Included are the following:

• A state of emergency declared by the governor

• A projection by the National Weather Service that the 

state, or portion of it, will be threatened by a major 

hurricane

Other criteria to be met include either:

• The state, or jurisdiction(s) thereof, has issued 

mandatory evacuation orders for three or more counties/ 

parishes, or any geographical area with a combined 

population of more than 100,000 residents; or

• The declaration is necessary to provide operational 

Federal support (e.g., teams, equipment, supplies) to 

meet critical pre-positioning and readiness requirements 

which would overwhelm the capability or capacity of 

state resources. 

Pre-landfall of a hurricane, usually Category 3 or higher, may also 

require the Aeromedical Evacuation (AE) of special medical needs 

patients from the locale. Patients may come from hospitals, nursing 

homes, home health care, or hospice. Mission Assignment (MA) for 

execution of AE should include AE crews, aircraft (usually C-130/

C-17), and other AE support personnel. Furthermore, each Aerial 

Port of Embarkation (APOE) should have an assigned Disaster 

Aeromedical Staging Facility (DASF)/Mobile Aeromedical Staging 

Facility (MASF) along with a Contingency Response Group/Element 

(CRG/CRE).

8.2.1.3 Categories 

Hurricane intensity is categorized according to the strength of wind 

speed. Hurricane categories (Category 1 through 5) are determined 

as follows:
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Category 1: Winds of 74 to 95 mph may cause damage to building 

structures. Flying debris such as siding, roofing materials, and lawn 

furniture can become dangerous. Major damage will occur primarily 

to unanchored mobile homes, shrubbery, and trees. Coastal flooding 

and pier damage is also likely.

Category 2: Winds of 96 to 110 mph cause damage to roofing

structures, doors and windows, and considerable damage to 

vegetation and mobile homes, with flooding damage to piers and 

small craft in unprotected moorings.

Table 8-1. Hurricane Categories

Category

Wind speed 

(miles per 

hour)

Wind Speed 

(knots)

Storm surge 

(feet)

5 ≥ 156 >136 > 18

4 131 – 155 114-135 13 – 18

3 111 – 130 96-134 9 – 12

2 96 – 110 83-133 6 – 8

1 74 – 95 64-132 4 – 5

Surge values are for reference only. The actual storm surge will depend on 

offshore bathymetry and onshore terrain and construction.

Category 3: Winds of 111 to 130 mph cause some structural damage 

to small residences and utility buildings. Mobile homes are 

destroyed. Flooding near the coast destroys smaller structures with 

larger structures damaged by floating/flying debris. High winds 

create conditions for uprooting trees and downing telephone poles, 

resulting in massive power outages. Debris creates road hazards and 

may make some roads impassable. Initial storm surge will occur and 

terrain may be flooded well inland, limiting traffic mobility.

Evacuation of residential areas along the shoreline is strongly 

encouraged.
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Category 4: Winds of 131 to 155 mph will cause massive roof and 

structure failure. Extreme winds cause major erosion of beach areas, 

with flooding occurring well inland. Massive evacuation of 

residential areas may be required.

Category 5: Winds greater than 155 mph cause complete roof failure 

on many residences and industrial buildings. Some complete 

building failures occur and small utility buildings will be blown over. 

Flooding causes major damage to lower floors of all structures near 

the shoreline. Massive evacuation of residential areas is required.

8.2.1.4 Hurricane-related Terminology

Advisory: Hurricane and storm information is disseminated to the 

public every six hours.

Special Advisory: Information is disseminated when there is 

significant change in storm-related weather conditions.

Gale Warning: Issued when sustained winds of 35 to 54 mph and 

strong wave action are expected.

Storm Warning: Issued when sustained winds of 55 to 73 mph are 

expected.

Hurricane Watch: Issued when there is threat of hurricane 

conditions within 24 to 36 hours.

Hurricane Warning: Issued when hurricane is expected to strike 

within 24 hours or less, with sustained winds of 74 mph or greater,

and dangerously high water is expected.

Tropical Disturbance: A moving area of thunderstorms in the 

tropics.

Tropical Depression: An area of low pressure, rotary circulation of 

clouds, and winds up to 38 mph.

Tropical Storm: A storm categorized by counterclockwise

circulation of clouds and winds of 39 to 74 mph.
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Cyclone: A large-scale circulation of winds around a central region 

of low atmospheric pressure, counterclockwise in the Northern 

Hemisphere, clockwise in the Southern Hemisphere.

Typhoon: A tropical cyclone in the Western Pacific Ocean in which 

the maximum 1-minute sustained surface wind is 74 mph or greater.

Storm Surge: An abnormal rise in sea level accompanying a 

hurricane or other intense storm. Surge height is the difference 

between the observed level of the sea surface and the level that 

would have occurred in the absence of the cyclone. It is usually 

estimated by subtracting the normal or astronomic tide from the 

observed storm tide.

8.2.1.5 Anatomy of a Hurricane

The main parts of a hurricane are the eye, the eye-wall, and the rainbands on its outer edges.

Hurricane eye: Air spirals in toward the center in a counterclockwise pattern, and out the top in the opposite direction. In the 

very center of the storm, air sinks forming the cloud-free eye. The 

hurricane‘s center is a relatively calm, clear area usually 20 to 40 

miles across. As the eye passes over an area, the incredibly fierce 

winds and rain can suddenly stop and the sky becomes clear. Then 

just as quickly, the winds and rain begin again from the opposite 

direction.

Hurricane eye-wall: The dense wall of thunderstorms surrounding 

the eye has the strongest winds within the storm. Changes in the 

structure of the eye and eye-wall can cause changes in the wind 

speed, an indicator of the storm‘s intensity. The eye can grow or 

shrink in size, and double (concentric) eye-walls can form.

Hurricane spiral rain-bands: The outer rain-bands of the storm 

(often with hurricane or tropical storm-force winds) can extend a few 

hundred miles from the center. The dense bands of thunderstorms, 

which spiral slowly counterclockwise, range in width from a few 

miles to tens of miles and are 50 to 300 miles long. Sometimes the 
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bands and the eye are obscured by higher-level clouds, making it 

difficult for forecasters to use satellite imagery to monitor the storm.

8.2.1.6 Hurricane-related Disasters 

The main hazards associated with hurricanes are storm surge, high 

winds, heavy rain, and flooding, as well as tornadoes. The intensity 

of a hurricane is an indicator of its damage potential.

A storm surge is a large dome of water, 50 to 100 miles wide, that 

sweeps across the coastline near where a hurricane makes landfall. It 

can be more than 15 feet deep at its peak. The surge of water and 

accompanying wave action is devastating. Along the coast, storm 

surge is the greatest threat to life and property. The level of surge in 

a particular area is primarily related to the intensity of the hurricane 

and the slope of the continental shelf.

Hurricane winds not only damage structures, but the barrage of 

debris they carry can be quite dangerous. Damaging winds begin 

well before the hurricane eye makes landfall.

Heavy rainfall (up to 100 miles inland) can bring 6 to 12 inches of 

precipitation to the area, often resulting in severe flooding. Severe 

flooding can cause considerable damage and loss of life. In areas 

surrounded by higher elevations, heavy rains can cause flash floods

and devastating mudslides. Rains are generally heaviest with slower 

moving storms. The heaviest rain usually occurs to the right of the 

hurricane track in the period 6 hours before to 6 hours after landfall. 

Caution should be taken during rescue operations occurring during 

this time period. 

Tornadoes spawned by hurricanes making landfall can cause 

enormous destruction. As a hurricane moves shoreward, tornadoes 

often develop on the fringes of the storm. Tornadoes are most likely 

to occur in the right-front quadrant of the hurricane. Most tornadoes 

occur within 150 miles of the coast. 

8.2.1.7 Secondary Effects

Electrical power outages and disruption of utilities will be common. 

Severe flooding, especially salt water flooding, can affect water 
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supplies and cause dam failure. Other causes of injury and death 

include fires started by candles used when the electricity fails, 

generator misuse, heart attacks and accidents during the clean-up 

phase, and chemical spills.

Never assume that downed power lines are dead. They may 

be reenergized by back-feed from household generators. 

Remember: water and electricity don‘t mix. Pools of water 

may be electrically charged. Approach with caution.

8.2.2 Tornadoes

Tornadoes can form any time of year, but many occur in the spring.

Storms often are triggered where two different kinds of air masses 

meet, such as dry and moist or cold and warm. A strong tornado can 

destroy buildings and create a damage path as much as a mile wide. 

Wind speeds can top 300 miles per hour. 

Tornadoes occur just about everywhere in the world, but the most 

famous and active breeding ground for tornadoes is ―Tornado 

Alley,‖ which extends from Texas up through Oklahoma, Kansas 

and Nebraska to the Dakotas. Warm, moist air from the Gulf of 

Mexico clashes with cold air from the north and fuels the 

development of storms. 

8.2.2.1 Formation

Tornadoes can form out of many kinds of storms, but the storm most 

likely to produce tornadoes is the supercell. A supercell has an area 

of rotation within the storm called a mesocyclone that can spawn a 

tornado. The storm itself can rotate when winds at different levels of 

the atmosphere come from different directions. If the winds are lined 

up just right, with just enough strength, the storm spins like a top (the 

circulation). Air circulations within the storm, combined with a 

strong updraft, contribute to tornado formation. A wall cloud may 

form under the rain-free base of a supercell. Out of this lowered area,

a tornado may form.
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Figure 8-1. Anatomy of a Supercell 

8.2.2.2 Enhanced Fujita Scale

Tornado strength is based on the Enhanced Fujita (EF) Scale for 

Tornado Damage. Tornadoes are categorized according to the scale 

shown in Table 8-2.

Table 8-2. The Enhanced Fujita Scale for Tornado Damage

Operational EF Scale

EF Number 3 Second Gust (mph)

0 65-85

1 86-110

2 111-135

3 136-165

4 166-200

5 Over 200
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8.2.2.3 Tornado-related terminology

Tornado Watch: Issued when tornadoes are possible. Personnel 

should remain alert for approaching storms, watch the sky, and stay 

tuned for information to National Oceanic and Atmospheric 

Administration (NOAA) Weather Radio, commercial radio, or 

television.

Tornado Warning: Issued when a tornado has been sighted or 

indicated by weather radar. Personnel should take shelter 

immediately, listen to NOAA Weather Radio, commercial radio or 

television newscasts for the latest information, and look for 

approaching storms. Danger signs of approaching storms include:

• Dark, often greenish sky

• Hail

• Large, dark, low-lying cloud (particularly if rotating)

• Loud roar, similar to a freight train

A huge tornado funnel cloud touches down in Orchard, Iowa, 10 June

2008. Lori Mehmen of Orchard took the photo from outside her front 

door. Mehmen stated that the funnel cloud came near the ground and 

then went back up into the clouds. Trees and crops were damaged, but

no human injuries were reported. (AP Photo/Lori Mehmen)
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8.2.3 Effects on the Civilian Population

8.2.3.1 Displacement 

A major hurricane or tornado occurring in a metropolitan area could 

displace thousands of residents, resulting in need for shelter, food 

and water. Evacuation plans should be implemented well in advance 

of hurricane landfall to alleviate mass departure when the storm is 

imminent. For those citizens who choose to remain in the storm‘s 

path, lack of adequate housing and basic sustenance may result in 

delayed population migration, leading to clogged highways and 

potential hazard to unit movements. 

8.2.3.2 Casualties

The number and severity of casualties will vary significantly 

depending on degree of advance notice and level of success of 

evacuation operations. Other factors that affect the number of 

casualties include time of day, day of the week, and whether affected 

population is urban or rural. The greatest numbers of casualties in 

metropolitan areas are likely to occur during the daytime, when the 

commuting population increases the total population in the area. 

Most fatalities will occur during the storm-event itself as a result of

flying debris and rain induced flooding. However, additional Search 

and Rescue (SAR) activity should be anticipated for groups and 

individuals isolated by damaged infrastructure, as well as accidents 

from non-standard cooking and electrical generation equipment.

A major hurricane or tornado may create casualty rates that initially 

overwhelm local and state assets. When requested, Department of 

Defense (DoD) mortuary affairs units can provide valuable 

assistance (see ―Mortuary Affairs‖ guidance in Chapter 8 of the

Liaison Officer Toolkit). 

8.2.4 Medical Considerations

Widespread interruptions of electrical and water distribution systems 

and damage to critical public sanitation infrastructure, such as 

potable water and sewage pumping stations, distribution systems, 

and treatment facilities, will create the potential for serious public 
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health problems. Personnel should be briefed to remain clear of 

downed power distribution lines that may still be energized, thus 

creating an electrical hazard. Natural gas and propane lines may still 

contain enough gas to create a fire hazard.

Walking on and handling debris can cause cuts, scrapes, bruises, 

sprains, etc. to relief personnel. Relief workers should have current 

tetanus vaccinations (required every 10 years) and be revaccinated 

for a dirty wound if current vaccination is over 5 years old. 

At a minimum, personnel should be issued steel toe/shank 

footwear, safety goggles, and leather gloves. In addition, 

personnel should wear helmets or hard hats and carry potable 

water

After a hurricane, the civilian population and military personnel may 

be exposed to illnesses spread by contaminated food or drinking 

water, mosquitoes or other insects, as well as close contact with ill 

persons. Refer to Chapter 5, Section 5.12 for more information on 

medical support. 

8.3 Hurricane and Tornado Missions

Regardless of preparation and advance notice, a hurricane or large 

tornado in a populated area will quickly overwhelm the ability of 

local government to respond. The commander may receive MAs to

provide the following resources in support of civil authorities for 

hurricane or tornado response:

• Debris clearance (the most frequently requested support)

• Transportation of first responders, evacuees, displaced 

personnel, injured, medically fragile, or special needs 

populations

• Medical health providers

• Air assets for SAR, personnel transport/recovery, Medical 

Evacuation (MEDEVAC), logistics transport, or aerial structural 

damage assessment

• Logistical support such as bedding, food, water, generators, and 

medical supplies
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• Temporary shelter/staging base

• Key infrastructure assessment (United States Army Corps of 

Engineers (USACE) qualified personnel)

• Heavy equipment and operators 

• Shoring and structural reinforcement

• Personnel to support Disaster Mortuary Operational Response 

Teams (DMORTs) 

• Security

• Search and rescue

8.4 Planning Factors

A detailed Suggested Individual Equipment Matrix is located in 

Annex C.

In addition to all-hazards planning factors in Chapter 5, the following 

are specific to hurricane or tornado missions. 

8.4.1 Phase 1 - Assessment and Preparation/Mobilization

 Alert commander and staff of potential hurricane landfall and 

begin mission analysis. (A/N/S-3/5/7)

 A hurricane in a metropolitan area will overwhelm civilian 

facilities. Facilities may sustain major structural damage. Plan 

for organic logistics, administration, and medical support. (All)

 Plan for extensive relief supply transport and delivery missions. 

Equipment such as forklifts and flat bed trailers are critical to the 

success of the mission. (A/N/S-3/5/7)

 Major hurricanes can damage the utility infrastructure and 

disrupt the water supply. Plan how to provide potable water at 

your site. Plan to transport large quantities of water through any 

means available, e.g., a water buffalo or bottled water from 

FEMA. (A/N/S-4/8)

 Plan to deploy with hand tools for breaking up building 

materials. Do subordinate units have sufficient sledge hammers, 

shovels and picks? (Commander, A/N/S-4/8)

 If your mission assignment directs evacuee transport, plan for 

transport to unaffected areas. Plans should include (Commander, 

A/N/S 4-8):
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o Cargo straps and safety restraints

o Medical personnel available or embedded to assist with 

evacuee transport

o Location of central evacuation point

o Availability of medical personnel

o Availability of shelter

DoD mass evacuation will normally be led by United States 

Transportation Command (USTRANSCOM); however, there 

may be a request to support local transport to the Aerial Port 

of Debarkation (APOD).

 Following a pre-landfall declaration of emergency, plan for AE. 

Note: Approximately 20% of all patients that requiring AE may 

require critical care support. (Medical personnel)

 Plan security for equipment and personnel. (Commander)

 Develop strategy in coordination with Defense Coordinating 

Officer (DCO)/Joint Force Commander (JFC) or Joint Force 

Headquarters (JFHQ) to address request from NonGovernmental Agencies (NGOs) requiring external support (e.g., 

transportation, security) to distribute supplies. (A/N/S-3/4)

 Request handheld radios in 700 to 800 Megahertz (MHz)

bandwidth before departing home station. These radios may be 

provided by FEMA, when available. Determine battery 

requirements and resupply strategy. (Some radios require up to 

10 AA batteries in 24 hours). (A/N/S-4/8 and A/N/S-6) 

 Power generation equipment will be a high demand critical asset.

Plan for Class III requirements for these assets (package and 

bulk). (A/N/S-4/8)

 Major flooding may accompany a large hurricane. Ensure 

personnel are appropriately equipped for flood relief operations. 

(A/N/S-4/8)

8.4.2 Phase 2 - Deployment

 See Chapter 5 for planning considerations for all hazards.

 Review medical considerations in Chapter 5, Section 5.12. (All)
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8.4.3 Phase 3 - Support of Civil Authorities

 Personnel may be tasked with supporting urban, maritime, or 

land SAR team. SAR operations (especially urban) require 

special training/certification. Ensure personnel are properly 

trained prior to executing these tasks. (A/N/S-3/5/7)

Do not allow untrained personnel to enter a collapsed 

structure without trained and certified personnel leading the 

effort. Failure to do so may lead to injury or death.

 For all missions, forces should maintain coordination with 

Defense Coordinating Element (DCE)/JTF and JFHQ-State on 

status of activities undertaken to support civil authorities.

(Commander, A/N/S/-3/5/7)

 Work through your Liaison Officer (LNO) to obtain the 

communications plan for the affected area. (A/N/S-6)

 Coordinate with other military counterparts who have the 

capability to interface with the civilian first responder network. 

(A/N/S-6)

 Request, distribute, and manage handheld radios. (A/N/S-6)

 Coordinate with the local Incident Commander(s) (IC) to operate 

on assigned frequencies and use appropriate protocols. (A/N/S-6)

 Be prepared to provide key infrastructure assessment support for 

bridge/overpass inspections. (Engineer Units)

 If applicable, you may be tasked to conduct bridging operations 

to replace critical infrastructure. (Engineer Bridge Units)

 Plan to assist local officials in inspecting buildings for structural 

integrity and completing damage survey reports. (USACE)

 Plan for treatment capabilities to be limited by major structural 

damage to hospitals, a shortage of medical transport vehicles, a 

shortage of trained medical personnel, and a shortage of medical 

and blood supplies. (A/N/S-3/5/7 and Surgeon)

 Plan to coordinate with state and local officials and news media 

in order to manage response expectations. (Public Affairs 

Officer)
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8.4.4 Phase 4 - Re-deployment/Demobilization

 Follow proper equipment maintenance procedures for equipment 

used in the vicinity of salt water. (A/N/S-4/8)

 Perform post-deployment medical assessments. (Surgeon)

 Determine a need for post-exposure screening. (Surgeon, 

A/N/S-1)

 Conduct battle-damage assessment and repair/replacement cost 

estimates and submit to higher headquarters. Include reference to 

MA. (A/N/S-4/8)

 Ensure close-out of all MA associated paperwork. (Commander)

 Ensure any Reports of Survey or Statements of Charges are 

submitted for reimbursement. (A/N/S-4)

 In coordination with the Defense Coordinating Element (DCE),

compile all data from support operations including but not 

limited to total man-hours used, number and type of equipment 

used, fuel usage, maintenance performed and equipment lost, 

damaged or destroyed for reimbursement. (All)

8.5 For More Information

Department of Commerce, National Oceanic and Atmospheric 

Administration, National Hurricane Operations Plan (FCM-P12-

2010), dated May 2010

The FEMA website has general information on natural disasters, 

including hurricanes and tornadoes, their formation, resulting 

damage, and preparedness activities.

http://www.fema.gov/hazard/hurricane/index.shtm

The Center for Disease Control (CDC) website has updated 

information on hurricanes and other natural disasters.

http://emergency.cdc.gov/disasters/hurricanes/

NOAA is a federal agency focused on the condition of the oceans 

and the atmosphere.

http://www.noaa.gov/
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NOTES
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CHAPTER 9: EARTHQUAKE

This chapter presents information about earthquakes and 

related disasters (mudslides and tsunamis). It provides

important background and hazard information and 

earthquake-related organizations. Also included are 

medical considerations, mission sets, and planning 

factors. 

9.1 Introduction

An earthquake is movement, generally sudden, along a geologic fault 

that results in release of accumulated strain within or along the edge 

of one or many of the Earth‘s tectonic plates. Effects of an 

earthquake can be felt far beyond the site of its occurrence. It is 

estimated that there are 500,000 detectable earthquakes in the world 

each year—100,000 can be felt and 100 cause damage.

Earthquakes usually occur without warning. Depending on 

magnitude, they have potential to cause massive damage and 

extensive casualties within just a few seconds. The most common 

effect of earthquakes is ground motion or shaking. This motion is 

caused by two types of waves—waves in the Earth‘s interior called 

seismic waves and waves along the Earth‘s surface called surface 

waves. 

9.2 Disaster-specific Information

9.2.1 Hypocenter

The hypocenter of an earthquake is the point below the Earth's 

surface where the rupture begins. Most earthquakes occur at depths 

of less than 50 miles from the Earth‘s surface.

9.2.2 Epicenter

The epicenter of an earthquake is the point on the surface of the 

ground directly above where the earthquake begins.
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9.2.3 Severity

The severity of an earthquake can be expressed in terms of both 

intensity and magnitude. The two terms are quite different and are 

often confused. 

Intensity is based on observed effects of the earthquake on people, 

buildings, and natural features. Intensity varies from place to place 

within the disturbed region depending on the location of the observer 

with respect to the earthquake hypocenter. Although numerous 

intensity scales have been developed over the last several hundred 

years, the one currently used in the United States is the Modified 

Mercalli Intensity Scale. This scale is composed of 12 increasing 

levels of intensity that range from imperceptible shaking to 

catastrophic destruction, designated by Roman numerals. It does not 

have a mathematical basis; instead, it is an arbitrary ranking based on 

observed effects.

The Cypress Freeway structure in Oakland was built in the 1950s, 

before the use of modern seismic safety standards. Part of the 

structure standing on soft mud collapsed in the magnitude 6.9 

Loma Prieta earthquake in 1989. Adjacent parts of the structure 

that were built on firmer ground remained standing.
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Magnitude is related to the amount of seismic energy released at the 

hypocenter of the earthquake. It is based on amplitude of the 

earthquake waves recorded on instruments which have a common 

calibration. The magnitude of an earthquake is thus represented by a 

single, instrumentally determined value. 

The Richter Magnitude Scale was developed in 1935 by Charles F. 

Richter of the California Institute of Technology as a mathematical 

device to compare the size of earthquakes. The Richter Scale is not 

used to express damage. An earthquake in a densely populated area 

which results in many deaths and considerable damage may have the 

same magnitude as a shock in a remote area that does nothing more 

than frighten wildlife.

The Modified Mercalli Scale and the Richter Scale are compared in 

Table 9-1.

Table 9-1. Modified Mercalli Scale and the Richter Scale

Modified Mercalli 

Scale Level Of Damage Richter 

Scale

IIVInstrumental 

to Moderate

No damage.

<= 4.3

V

Rather 

Strong

Damage negligible. Small, unstable 

objects displaced or upset. Some 

dishes and glassware broken.

4.4‒4.8

VI Strong

Damage slight. Windows, dishes, 

glassware broken. Furniture moved or 

overturned. Weak plaster and masonry 

cracked.

4.9‒5.4

VII Very Strong

Damage slight-moderate in well-built 

structures; considerable in poorly-built 

structures. Furniture and weak 

chimneys broken. Masonry damaged. 

Loose bricks, tiles, plaster, and stones 

will fall.

5.5‒6.1
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VIII Destructive

Structure damage considerable, 

particularly to poorly built structures. 

Chimneys, monuments, towers, 

elevated tanks may fail. Frame houses 

moved. Trees damaged. Cracks in wet 

ground and steep slopes.

6.2‒6.5

IX Ruinous

Structural damage severe; some 

structures will collapse. General 

damage to foundations. Serious 

damage to reservoirs. Underground 

pipes broken. Conspicuous cracks in 

ground; liquefaction.

6.6‒6.9

X Disastrous

Most masonry and frame 

structures/foundations destroyed. 

Some well-built wooden structures and 

bridges destroyed. Serious damage to 

dams, dikes, embankments. Sand and 

mud shifting on beaches and flat land.

7.0‒7.3

XI Very 

Disastrous

Few or no masonry structures remain 

standing. Bridges destroyed. Broad 

fissures in ground. Underground 

pipelines completely out of service. 

Rails bent. Widespread earth slumps 

and landslides.

7.4‒8.1

XII Catastrophic

Damage nearly total. Large rock 

masses displaced. Lines of sight and 

level distorted.

> 8.1

9.2.3.1 Aftershocks

Large earthquakes will normally be followed by a large number 

(possibly hundreds) of aftershocks. Aftershocks are created by 

ongoing movement on the fault(s) and can continue for months. The 

potential range in magnitude for aftershocks is generally proportional 

to the size of the main shock. They become less frequent and smaller 
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over time; most large aftershocks occur in the first 30 to 60 days 

after the main shock. Some aftershocks can be quite large and cause 

already weakened structures to collapse or suffer further damage. 

The occurrence of aftershocks will have a cumulative effect on the 

feeling of well-being or safety for residents and responders.

9.2.3.2 Liquefaction

Liquefaction occurs when seismic waves pass through saturated 

granular soil, distorting granular structure and causing some of the 

empty spaces between granules to collapse. Pore-water pressure may 

also increase sufficiently to cause the soil to behave like a fluid for a 

brief period. Liquefaction causes lateral spreads (horizontal 

movement, commonly 10 to 15 feet but up to 100 feet), flow failures 

(massive flows of soil, typically hundreds of feet, but potentially up 

to several miles), and loss of bearing strength (soil deformations 

causing structures to settle or tip). 

Liquefaction-related damage in the Marina District of San 

Francisco followed the Loma Prieta earthquake.

There are many potential adverse consequences of liquefaction, 

including small building settlement, larger settlement associated with 

reduction of foundation-bearing strength, and large lateral ground 

displacements that tend to shear a building apart.
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9.2.3.3 Surface Faulting

Surface faulting occurs when the fault rupture in an earthquake is 

expressed at the Earth‘s surface. Surface fault displacements 

typically range from a few inches to a foot or two for a magnitude

6.0 earthquake, to 10 feet or more for a magnitude 7.5 earthquake. 

Because surface faulting tends to occur along a relatively narrow 

area around the fault zone, large displacements may have 

catastrophic effects on structures built in close proximity to the fault.

This fence near Point Reyes was offset 8 feet when the San Andreas 

Fault moved during the magnitude 7.8 earthquake of 1906.

9.2.3.4 Landslides and Debris Flows

Earthquake-induced landslides occur as a result of horizontal forces 

induced in the slopes by ground shaking. The most common of these
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include shallow, disrupted landslides such as rock falls, rockslides, 

and soil slides. Landslides due to tectonic deformation can also occur 

near the fault rupture. Either type of earthquake-induced landslide 

can damage structures and impede traffic flow. 

Debris flows are created when surface soil on steep slopes becomes 

totally saturated with water. Once the soil liquefies, it loses the 

ability to hold together and can flow downhill at very high speeds, 

taking vegetation and/or structures with it. 

The hillside beneath a 

home gave way 

following the 

magnitude 6.7 

Northridge earthquake 

in 1994.

9.2.3.5 Tsunamis

A tsunami is a sea wave caused by an underwater earthquake, 

landslide, or volcanic eruption displacing ocean water. Earthquake-
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induced tsunamis are likely to advance on shore at great speeds, 

resulting in drowning deaths and severe damage or destruction of 

inundated structures. 

Before and after photographs show the massive destruction of the Indian 

Ocean tsunami in December 2004.
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A tsunami is not a single wave but a series of waves, also known as a 

wave train. The first wave in a tsunami is not necessarily the most 

destructive. The wave train may come as a series of surges that are 

five minutes to an hour apart; thus the danger from a tsunami can last 

for several hours after the arrival of the first wave. The cycle may be 

marked by a repeated retreat and advance of the ocean.

Tsunami waves can be as much as 60 miles long and can be spaced as 

far apart as one hour. They can cross entire oceans without great loss 

of energy, traveling unnoticed on the surface at speeds up to 500 

miles an hour and crossing the ocean in a day or less. As they may be 

less than a foot in height on the surface of the open ocean, tsunami 

waves will not likely be noticed by sailors, but the powerful shock 

wave of energy travels as rapidly as a commercial jet. When the 

tsunami reaches the coast, the shallow water slows the tsunami; the 

top of the wave moves faster than the bottom, causing the sea to rise 

dramatically. 

TSUNAMI WARNING

Witnesses have reported that an approaching tsunami is 

sometimes preceded by a noticeable fall or rise in the water 

level. A rapid or unusual retreat of ocean water is a good 

sign that a big wave is on its way. Go to high ground 

immediately. Many people were killed by the Indian Ocean 

tsunami because they went down to the beach to view the 

receding ocean exposing the seafloor. Experts believe that a 

receding ocean may give people as much as five minutes 

warning to evacuate the area.

9.2.4 Secondary Hazards in Urban Areas

9.2.4.1 Fires

Post-earthquake fires often result from damage to gas lines, electrical 

systems, and fuel storage facilities. Fire risks are likely to occur 

where high-density, wood frame housing is built over soft soils that 

are prone to high-intensity shaking. Simultaneous ignitions, damaged 

communications and transportation routes, and lack of water can 
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impede professional response to these fires. Fires will continue to 

ignite as power is restored, a process that can take several weeks. 

Fires spread through San Francisco‘s Marina District following the Loma 

Prieta earthquake.

9.2.4.2 Transportation Infrastructure and Utility Impacts

A major earthquake will cause partial interruption or major 

destruction to water, gas, and sewer facilities and lines, electrical 

power plants and transmission lines, highways, bridges, overpasses, 

rail lines, and airport runways and facilities. 

Water service will be interrupted within the first few hours of a large 

earthquake and full restoration may take two to three months. Water 

shortages can become a significant limiting factor for hospitals, 

prisons, 24-hour care facilities, as well as for the general public. 
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Electrical power will be interrupted immediately; service interruption 

estimates following a major earthquake range from 7 to 15 days. Gas

services may be immediately interrupted or may gradually decline 

due to leaks and restoration of service may take weeks. 

Public telephone systems, including wireless systems, will be 

damaged or overloaded and may take several weeks to restore. 

A section of the eastern span of the San Francisco-Oakland Bay Bridge 

collapsed in the Loma Prieta earthquake.

9.2.4.3 Collapsed Buildings

Widespread structural failures are likely to occur following any 

earthquake event. Structural damage is most likely to occur in areas 

of the most intense shaking. As with other earthquake effects, 

structures built on soft soils or fill are at the greatest risk. The 

earthquake will generate millions of tons of debris. Initially, 
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collapsed buildings and other structures will block roads and limit 

movement for evacuees and response personnel and vehicles.

A hospital in Sylmar, California, had to be demolished after the magnitude 6.7 

San Fernando earthquake in 1971.

9.2.4.4 Residential Buildings

The majority of structures in a metropolitan area are personal 

residences. Most homes are constructed of wood and are susceptible 

to post-earthquake fires. Other seismically vulnerable buildings 

include those that have ―soft stories.‖ Soft stories are those with 

extensive exterior wall openings and insufficient exterior and interior 

shear walls and thus have a greater potential for collapse. Soft stories 

are common in residential buildings with garages on the first floor 

and corner commercial buildings with large windows opening onto 

side streets. 
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―Soft story‖ buildings, typically with parking on ground floor, like 

the one pictured here, are particularly at risk when exposed to 

strong shaking.

9.2.4.5 Dam/Reservoir Failure

Earthquakes can rupture and collapse dams and reservoirs, resulting 

in the rapid release of large quantities of water, flooding property 

located downstream or down slope and presenting potential for 

mudslides.

Cracks in the top of this 

earthen dam were caused by 

the 1989 magnitude 6.9 

Loma Prieta earthquake.
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9.2.4.6 Hazardous Materials Spills

Severe shaking and liquefaction caused by a large earthquake have

the potential to cause significant damage to pipes, storage tanks, fuel 

lines and other structures at gas stations, manufacturing plants, ports, 

airport fueling facilities, and other facilities that handle hazardous 

materials. In addition, earthquake-induced damage to rail lines and 

bridges can cause derailments of cars carrying hazardous materials. 

Oil was released 

and caught fire 

when this storage 

facility was 

damaged by the 

magnitude 7.4 

Izmit, Turkey, 

earthquake in 

1999.

9.2.5 Effects on the Civilian Population

9.2.5.1 Displacement 

A major earthquake occurring in a metropolitan area could displace 

tens of thousands of residents. Lack of adequate housing may result 

in population migration, leading to clogged highways and a potential

hazard to unit movements.

9.2.5.2 Casualties

The number and severity of casualties will vary significantly 

depending on specific circumstances, including time of day, day of 

the week, and whether affected population is urban or rural. The 

greatest numbers of casualties in metropolitan areas are likely to 

occur during the daytime, when the commuting population increases 
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the total population in the area. Most fatalities will occur in the first 

48 hours, but recovery of those buried in debris may continue for 

weeks.

A major earthquake will create casualty rates that initially 

overwhelm local and state assets. When requested, Department of 

Defense (DoD) mortuary affairs units can provide valuable 

assistance (see ―Mortuary Affairs‖ guidance in Chapter 8 of the

Liaison Officer Toolkit).

9.2.6 Medical Considerations

Widespread interruptions of electrical and water distribution systems 

and damage to critical public sanitation infrastructure (potable water 

and sewage pumping stations, distribution systems, treatment 

facilities, etc.) will create the potential for serious public health 

problems. 

Walking on and handling debris can cause cuts, scrapes, bruises, 

sprains, etc. to relief personnel. Relief workers should have current 

tetanus vaccinations (required every 10 years) and be revaccinated 

for a dirty wound if current vaccination is over 5 years old. 

At a minimum, personnel should be issued steel toe/shank 

footwear, safety goggles, and leather gloves. In addition, 

personnel should wear helmets or hard hats and carry potable

water.

After an earthquake, the civilian population and military personnel 

may be exposed to illnesses spread by contaminated food or drinking 

water, mosquitoes or other insects, and close contact with ill persons. 

An even greater danger may be the environmental health risks posed 

by airborne particulates found in collapsed building. Refer to

Chapter 5, Section 5.12 for more information on medical support. 

9.3 Earthquake Missions

Regardless of preparation by local government, a major earthquake 

will quickly overwhelm the ability to respond. The commander who 
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has been tasked to support civil authorities may receive the following 

resource requests:

• Transportation of first responders, evacuees, displaced 

personnel, injured, medically fragile, or special needs 

populations

• Medical health providers

• Air assets for search and rescue, personnel transport/recovery,

Medical Evacuation (MEDEVAC), logistics transport, or aerial 

structural damage assessment

• Logistical support such as bedding, food, water, generators, and 

medical supplies

• Temporary shelter/staging base

• Key infrastructure assessment (United States Army Corps of 

Engineers (USACE) qualified personnel)

• Heavy equipment and operators 

• Shoring and debris clearing

• Personnel to support Disaster Mortuary Operational Response 

Teams (DMORTs) 

The following excerpt illustrates what DoD brings to relief support 

operations.

PORT-AU-PRINCE, Haiti – In the immediate aftermath of the 

earthquake that devastated much of Haiti, aid groups from around the 

world lined up shipments of food, water and medical supplies.

They loaded cargo aircraft and ships and recruited volunteers to assist 

in the effort. Then they waited, even as televisions across the world 

flashed images of suffering and death.

The port was destroyed, and the tiny airport in the Haitian capital was 

quickly overwhelmed. Much of the aid that did touchdown was stuck 

at the airport because aid groups lacked the ability to push it out to the 

people, to feed them and tend to their injuries.

It was days before the U.S. troops began arriving en masse, bringing 

with them an industrial operational capability and a logistical structure 

that turned a disjointed system into one capable of caring for thousands 

of victims. The sudden change, experts say, highlights just how critical
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military capabilities are in such massive relief missions. The 22nd 

Marine Expeditionary Unit deployed early, as did elements of the 

Army‘s 82nd Airborne Division and a handful of Navy ships including 

the USNS (United States Naval Ship) Comfort hospital ship. The Air 

Force took over operations at the airport, and incoming flights 

increased from an average of 13 a day to more than 100.

The military‘s ability to keep track of people, machinery and money is 

among its biggest assets, said retired Army Gen. Barry McCaffrey, 

former head of United States Southern Command. ―That commandand-control capability, I don‘t think exists in any NGO (NonGovernmental Organization). And the military, more so than any 

single aid group, has the ability to deal with the sheer scope of the 

disaster,‖ McCaffrey said.

McCloskey, Megan and Schogol, Jeff. ―Bringing Order to Chaos.‖ 

Stars and Stripes. January 29, 2010, pp. 8-9.

9.4 Planning Factors

In addition to all-hazards planning factors in Chapter 5, the following 

are specific to earthquake missions.

A detailed Suggested Individual Equipment Matrix is located in 

Annex C.

9.4.1 Phase 1 - Assessment and Preparation/Mobilization

 Plan for extensive relief supply transport and delivery missions. 

Equipment such as forklifts and flat bed trailers will be critical to 

the success of the mission. (A/N/S-3/5/7)

 Plan how to provide potable water at your site. Major 

earthquakes can damage the utility infrastructure and disrupt the 

water supply. (A/N/S-4/8)

 If your mission assignment directs evacuee transport, plan for 

transport to unaffected areas. Plans should include (Commander, 

A/N/S-4/8):

o Cargo straps and safety restraints

o Medical personnel available or embedded to assist with 

evacuee transport
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o Location of central evacuation point

o Availability of medical personnel

o Availability of shelter

DoD mass evacuation will normally be led by United States 

Transportation Command (USTRANSCOM); however, there 

may be a request to support local transport to the Aerial Port 

of Debarkation (APOD).

 Plan to deploy with hand tools for breaking up building 

materials. Do subordinate units have sufficient sledge hammers, 

shovels and picks? (Commander, A/N/S-4/8)

 Plan to provide security for personnel and equipment.

(Commander)

 Develop strategy in coordination with Defense Coordinating 

Officer (DCO)/Joint Force Commander (JFC) or Joint Force 

Headquarters (JFHQ) to address request from non-governmental

agencies with transportation, security, and distribution of

supplies. (A/N/S-3/4)

 Request handheld radios in 700 to 800 Megahertz (MHz)

bandwidth before departing home station. These radios may be 

provided by the Federal Emergency Management Agency 

(FEMA), when available. Determine battery requirements and 

resupply strategy. (Some radios use up to 10 AA batteries in 24 

hours). (A/N/S-4/8 and A/N/S-6) 

 Power generation equipment will be a high demand critical asset.

Plan for Class III requirements for these assets (package and 

bulk). (A/N/S-4/8)

9.4.2 Phase 2 - Deployment

 See Chapter 5 for planning considerations for all-hazards.

 Review medical considerations in Chapter 5, Section 5.12. (All) 

9.4.3 Phase 3 - Support of Civil Authorities

 Your personnel may be tasked to support an urban SAR team. 

Urban SAR requires special training/certification. Ensure 
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personnel are properly trained prior to executing their tasks.

(A/N/S-3/5)

Do not allow untrained personnel to enter a collapsed 

structure without trained and certified personnel leading the 

effort. Failure to do so may lead to injury or death. 

 Work through your Liaison Officer (LNO) to obtain the 

communications plan for the affected area. (A/N/S-6)

 Coordinate with other military counterparts who have the 

capability to interface with the civilian first responder network. 

(A/N/S-6)

 Request, distribute, and manage handheld radios. (A/N/S-6)

 Coordinate with the local Incident Commander(s) (ICs) to

operate on assigned frequencies and use appropriate protocols. 

(A/N/S-6)

 Be prepared to provide key infrastructure assessment support for 

bridge/overpass inspections. (Engineer Units)

 If applicable, you may be tasked with conducting bridging 

operations to replace critical infrastructure. (Engineer Bridge 

Units)

 Plan to assist local officials in inspecting buildings for structural

integrity and completing damage survey reports. (USACE)

 Plan for treatment capabilities to be limited by major structural 

damage to hospitals, a shortage of medical transport vehicles, a 

shortage of trained medical personnel, and a shortage of medical 

and blood supplies. (A/N/S-3/5/7 and Surgeon)

 Watch for crushing injuries which may not be immediately lifethreatening but can lead to internal bleeding, gangrene, and 

death. (Surgeon)

 Plan to coordinate with state and local officials and news media 

in order to manage response expectations. (Public Affairs 

Officer)

9.4.4 Phase 4 - Re-deployment/Demobilization

 Follow proper equipment maintenance procedures for operation 

in the vicinity of salt water. (A/N/S-4/8)
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 Perform post-deployment medical assessments. (Surgeon)

 Determine need for post-exposure screening. (Surgeon, A/N/S-1)

 Conduct battle-damage assessment and repair/replacement cost 

estimates and submit to higher headquarters. Include reference to

MA. (A/N/S-4/8)

 Ensure close-out of all MA associated paperwork. (Commander)

 Ensure any Reports of Survey or Statements of Charges are 

submitted for reimbursement. (A/N/S-4)

 In coordination with the Defense Coordinating Element (DCE),

compile all data from support operations including but not 

limited to total man-hours used, number and type of equipment 

used, fuel usage, maintenance performed and equipment lost, 

damaged or destroyed for reimbursement. (All)

9.5 For More Information

United States Army FM 3-28, Civil Support (CS) Operations covers 

all aspects of DSCA operations 

https://akocomm.us.army.mil/usapa/doctrine/DR_pubs/dr_c/pdf/fm3

_28x1.pdf

United States Northern Command (USNORTHCOM) Earthquake 

Response CONOP, dated 17 March 2009, can be found at

http://policy.defense.gov/sections/policy_offices/hd/assets/download

s/eplo/presentations/Breakout%203%20-%20Earthquake%20-

%20Stuhlreyer.pdf

The City and County of San Francisco‘s Earthquake Response Plan 

http://www.sfgov.org/site/uploadedfiles/oes/EQ_plan_ADM_921_co

mment%20copy5.pdf

Information concerning the New Madrid fault on the Central United 

States Earthquake Consortium‘s website http://www.cusec.org/

The Center for Disease Control website 

http://www.bt.cdc.gov/disasters/earthquakes/

Other links to earthquake information:

http://earthquake.usgs.gov/pager/

http://pubs.usgs.gov/fs/2006/3125
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http://geology.cr.usgs.gov/pub/fact-sheets/fs-0006-01/

http://earthquake.usgs.gov/hazards/prepare.html

http://pubs.usgs.gov/of/2008/1150/

In addition, each state has an Emergency Operations Plan which can 

be accessed via the internet.
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NOTES
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CHAPTER 10: FLOOD

This chapter presents information about various types of 

floods. It presents important information about the causes and 

effects of floods, useful information for responding to floods,

and associated safety issues. Also included are medical 

considerations, mission sets, and planning factors. All states 

and territories are at risk from this hazard.

10.1 Introduction

Each year, more deaths are caused by flooding than any other hazard. 

Most of these deaths occur when people drive into flooded highway 

dips in low drainage areas. Drivers tend to underestimate the force 

and power of water. Six inches of fast-moving water can knock 

people off their feet. Depths of 24 inches can carry away most 

automobiles. 

All floods are not alike. Some floods develop slowly, and others over 

a period of days. Flash floods develop quickly, sometimes in just a 

few minutes and without any visible signs of rain in the immediate 

area. Flash floods often have a dangerous wall of roaring water that 

carries rocks, mud, and other debris and can sweep away most things 

in their path. Overland flooding occurs outside a defined river or 

stream inside the flood plain, such as when a levee is breached.

Flooding also occurs when a dam breaks, producing effects similar to 

flash floods.

Floods cause damage by producing moving water with tremendous 

power. The power of moving water is magnified by debris that the 

water carries, such as trees, vehicles, boulders, and buildings. Fastmoving water can sweep up everything in its path, throwing it 

against things downstream and leaving terrible destruction behind. 

The filth, dirt and debris left in its path is expensive to clean up. It 

contains chemicals, germs and bacteria, pollutes drinking water 

supplies, and creates health hazards. Floods cause water damage to 

communication and electronic equipment and begin the degradation 

process through wet rot, dry rot, rust, etc.
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10.2 Disaster-specific Information 

10.2.1 Flood Terminology

Flood Watch: Issued when high flow or overflow of water from a 

river is possible within a given time period. It can also apply to 

heavy runoff or drainage of water into low-lying areas. These 

watches are generally issued for flooding that is expected to occur at 

least 6 hours after heavy rains have ended. 

Flood Warning: Issued when flooding is actually occurring or is 

imminent in the warning area.

Flash Flood Watch: Issued when flash flooding is possible in or 

close to the watch area. Flash flood watches are generally issued for 

flooding that is expected to occur within 6 hours after heavy rains 

have ended. 

Flash Flood Warning: Issued when flash flooding is actually 

occurring or is imminent in the warning area. It can be issued as a 

result of torrential rains, a dam failure, or ice jam. 

Coastal Flood Watch: Issued when the possibility exists for the 

inundation of land areas along the coast within the next 12 to 36 

hours. 

Coastal Flood Warning: Issued when land areas along the coast are 

expected to become, or have become, inundated by sea water above 

the typical tide action.

10.2.2 Types of Floods

Floods are generally grouped into the following types:

• Riverine flooding

• Urban drainage

• Ground failures

• Fluctuating lake level

• Coastal flooding and erosion

Within some of these groups are flood subtypes.
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10.2.2.1 Surface Runoff and Riverine Flooding

When rainfall reaches the Earth‘s surface, water evaporates, 

infiltrates the soil, or runs over the surface. Types of ground cover 

greatly influence proportions of each of these actions. For example, 

cover types found in an urban area include open space (lawns, golf 

courses, parks) generally covered with grass, streets and roads, paved 

parking lots, shopping centers, houses and residential areas, and 

offices and business areas. If the rainfall intensity exceeds the 

evaporation rate and infiltration capacity of the soil, surface runoff

occurs. It also occurs when rainfall falls on impervious surfaces, 

such as roadways and other paved areas. 

Water flows across the surface as either confined or unconfined flow. 

Unconfined flow moves in broad sheets of water often causing sheet 

erosion. It can also pick up and absorb or carry contaminants from 

the surface. Water that flows along the surface may become trapped 

in depressions where water may evaporate, infiltrate the ground, or 

spill out of the depression as it fills. If local drainage conditions are 

inadequate to accommodate rainfall through a combination of 

evaporation, infiltration, and surface runoff, accumulation of water in 

certain areas may cause localized flooding problems.

Alternately, the sheet flow may reach a natural or constructed water 

conveyance system such as a swale, channel, or conduit. Water is

then conveyed to larger drainage systems such as creeks, streams,

and rivers. During winter and spring, accumulation of snow may 

increase water runoff generated by both precipitation and snowmelt.

Flooding from runoff of surface water generally increases as areas 

become more urbanized and the amount of impervious area such as 

pavement expands. Areas of natural ground that absorb rainfall are 

reduced and surface runoff increases. Uncontrolled runoff may be 

channeled to areas that cause flooding of structures and roadways. 

This may be especially true where predevelopment land surface has a 

gently sloping surface with no defined channels. Such areas are 

subject to shallow sheet flooding during storms, but urbanization and 

other development speeds the accumulation of floodwater. When 

surface water runoff introduced into streams and rivers exceeds the 
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capacity of the natural or constructed channels to accommodate the 

flow, water overflows the stream banks, spilling out into adjacent 

low lying areas. Riverine flooding occurs as a consequence.

A dog stands on 

the earthen and 

sandbag dike 

along the 

flooded Red 

River in Fargo, 

North Dakota, 

25 March 2009.

(AP Photo/

Carolyn Kaster)

The dynamics of riverine flooding vary with terrain. In relatively flat 

areas, land may stay covered with shallow, slow-moving floodwater 

for days or even weeks. In hilly and mountainous areas, floods may 

come minutes after a heavy rain. The short notice, large depths, and 

high velocities of flash floods make these types of floods particularly 

dangerous. Among the common types of riverine flooding are 

overbank flooding, flash floods, dam and levee failure, alluvial 

fans, and ice jam flooding.

Overbank flooding of rivers and streams occurs when the increased 

volume of water within a river channel overflows the channel onto 

the adjacent floodplain. This is the classic flooding event that most 

people associate with the term ―flood.‖ In fact, this is the most 

common type of flood event. Hundreds of riverine floods, great and 

small, occur annually in the United States.

The National Weather Service defines a flash flood as ―a rapid and 

extreme flow of high water into a normally dry area, or a rapid rise in 

a stream or creek above a predetermined flood level, beginning 

within six hours of the causative event (e.g., intense rainfall, dam 

failure, ice jam). However, the actual time threshold may vary in 
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different parts of the country. Ongoing flooding can intensify to flash 

flooding in cases where intense rainfall results in a rapid surge of 

rising flood waters.

Sandbags held at Cattleman‘s Restaurant at Belmond, Iowa, 

9 June 2008.

Flash floods are also characterized by a rapid rise in water, high 

velocities, and large amounts of debris. Major factors in flash 

flooding are the intensity and duration of rainfall and the steepness of 

watershed and stream gradients. Dam failure, release of ice jams, and 

collapse of debris dams can also cause flash floods. Flash floods 

occur in all 50 states, most commonly in steeply sloping valleys in 

mountainous areas. They can also occur along small waterways in 

urban environments. 

Dam and levee failure can be attributed to the construction of 

inadequate dams and levees or to a flood that exceeds the design 

protection level. Many private or locally built levees and dams may 

provide only limited flood protection. Others are sometimes poorly 

designed and maintained. Many were built with no design standards. 
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Levee overtopping or failure typically occurs when flood waters 

exceed levee capacity, often with spectacular and tragic results.

Flash 

flood 

outside 

San Diego, 

California, 

2009.

Ice jam flooding is similar to flash flooding. Formation of a jam 

results in a rapid rise of water, both at the point of the jam and 

upstream. Failure of the jam results in sudden flooding downstream. 

This type of flooding is a problem in at least 35 states.

Yukon 

River 

Flood 

devastates 

City of 

Eagle, 

Alaska, 11 

May 2009.
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Alluvial fans, which occur mainly in dry mountainous regions, are 

deposits of rock and soil that have eroded from mountainsides and 

accumulated on valley floors in a fan-shaped pattern. The deposits 

are narrow and steep at the head of the fan, broadening as they 

spread out onto the valley floor.

10.2.2.2 Urban Drainage

In an undeveloped area, nature provides the water runoff system. 

Some water remains where it falls and evaporates; some is absorbed 

into the ground near the surface and feeds trees and plants; some 

percolates deeply into the ground and replenishes the groundwater 

supply. The remainder quickly or gradually collects into rivulets, 

accumulating both in quantity and speed as it hurries down the 

watershed through drainage ways and streams to its ultimate 

destination, the river and then the sea, to begin the cycle again. 

Urban drainage (storm water) management is comprised of both 

natural and man-made elements. The storm water runoff system has 

two purposes: 1) control of storm water runoff to prevent or 

minimize damage to property, physical injury, and loss of life which 

may occur during or after a very infrequent or unusual storm; 

2) control of storm water to eliminate or minimize inconvenience or 

disruption of activity as a result of runoff from more frequently 

occurring, less significant storms.

10.2.2.3 Ground Failures

Flooding and flood-related erosion result from several types of 

ground failures. Subsidence and liquefaction of soil may cause 

flooding of areas in the immediate vicinity of the ground failure, 

while mudflows and mudfloods may cause damage downstream or 

down slope of the location of the initial ground failure.

Subsidence is a type of ground failure that can lower ground surface, 

causing or increasing flood damage in areas of high ground water, 

tides and storm surges, or over-bank stream flow. Subsidence occurs 

in nearly all the states. Ground failure due to subsidence can result in 

increased flood damage for two main reasons. If the land surface is 

lowered, it may be more frequently or more deeply flooded. In 
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addition, subsidence can block or otherwise alter drainage patterns 

leading to deeper or unexpected flooding.

Liquefaction is a phenomenon in which the strength and stiffness of 

a soil is reduced by earthquake shaking or other rapid loading. 

Liquefaction and related phenomena have been responsible for 

tremendous amounts of damage in historical earthquakes around the 

world.

Liquefaction occurs in saturated soils, that is soils in which the space 

between individual particles is completely filled with water. This 

water exerts a pressure on the soil particles that influences how 

tightly the particles themselves are pressed together. Prior to an 

earthquake, water pressure is relatively low. Earthquake shaking can 

cause the water pressure to increase to the point where soil particles 

can readily move with respect to each other.

Earthquake shaking often triggers this increase in water pressure, but 

construction-related activities such as blasting can also cause an 

increase in water pressure. When liquefaction occurs, the strength of 

the soil decreases, and the ability of a soil deposit to support 

foundations for buildings, levees, and bridges is reduced.

Liquefied soil exerts higher pressure on retaining walls, causing 

them to tilt or slide. This movement can cause settlement of the 

retained soil and destruction of structures on the ground surface. 

Increased water pressure can trigger landslides and cause dams to 

collapse. The lower San Fernando dam suffered an underwater slide 

during the 1971 San Fernando earthquake. Fortunately, the dam 

barely avoided collapse, thereby preventing the potential disaster of 

flooding of heavily populated areas below the dam.

On steep slopes (greater than 3%) where the saturated layer is at or 

near the surface, soil, vegetation and debris can flow rapidly down 

slope with liquefied material. These flow failures can result in 

movement of materials for miles. On gentle slopes (0.3 to 3%) where 

the saturated layer is below the surface, lateral speed failures occur, 

with huge blocks of soil moving 10 to 100 feet or more.
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Mudflows and mudfloods (also referred to as debris flow) are 

considered a subset of landslides and affect many of the Nation‘s 

floodplains. Areas that have experienced the greatest landslide 

damage are the Appalachian, Rocky Mountain, and Pacific Coast 

regions.

10.2.2.4 Fluctuating Lake Levels

Water levels in the Nation‘s lakes can fluctuate on a short-term 

(seasonally) or long-term (yearly) basis. Periods of heavy rainfall can 

cause high water levels for short periods of time; annual snowmelt 

can result in higher water levels in the spring. Long-term lake level 

fluctuations are a less-recognized phenomenon that can cause high 

water and subsequent flooding problems lasting for years or even 

decades.

10.2.2.5 Coastal Flooding and Erosion

Coastal flooding and erosion as a result of storm surge and wave 

action are serious problems along much of the Nation‘s coastline, 

although the frequency and magnitude of flooding and the severity of 

the erosion vary considerably. 

Storm surge is the increase in water surface elevation above normal 

tide levels due primarily to low barometric pressure and piling up of 

waters in coastal areas as a result of wind action over a long stretch 

of open water. Low pressure inside a storm or hurricane‘s eye creates 

suction; consequently, a dome of water develops near the center of 

the storm. In the deep ocean, this dome of water sinks and 

harmlessly flows away. But as a storm nears land, strong winds in 

the storm push the dome of water toward the shore. The rising sea 

floor blocks the water‘s escape and it comes ashore as a deadly storm 

surge. An intense hurricane can send a dome of water many miles 

wide and more than 25 feet deep barreling toward the shore as the 

storm hits land. 
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A home burns in flooding from storm surge during Hurricane Ike in Galveston, 

Texas, on Friday, 12 September 2008. At right, the same scene is photographed on 

16 August 2009. (AP photo/The Houston Chronicle, Smiley N. Pool)

In addition to storm surge, wave action is an important aspect of 

coastal storms. Breaking waves at the shoreline become very 

destructive, causing damage to natural and manmade structures by 

hydrodynamic pressure, battering solid objects and scouring sand 

from foundations. Components of wave action include wave set-up 

and wave run-up. Wave set-up is the super elevation of the water 

surface over normal surge elevation and is caused by onshore mass 

transport of the water by wave action alone. Wave run-up is the 

action of a wave after it breaks and the water ―runs up‖ the shoreline 

or other obstacle, flooding areas not reached by the storm surge 

itself. Where vertical obstructions such as seawalls are present, wave 

run-up is translated into upward movement of the water. 

10.2.3 Floodwater Damage to Structures

The extent of damage to structures that come in contact with 

floodwaters depends on the depth of the water in and around the 

structure, the length of time of inundation, the toxic extent of 

contaminants in floodwaters, and how rapidly the water is moving. 

Both static (little or no water movement) and dynamic (rapidly 

flowing water) forces are often at play. 
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In a static environment, water attacks and compromises the integrity 

of every part of a structure, particularly the wood foundation pilings, 

structural beams, carpets, wood floors, cabinetry, mechanical 

systems, utilities, and walls. Most damage to homes is sustained in 

the first four feet above the first floor. 

Floods that rise and recede quickly result in less damage than water 

that sits for a long period. Carpeting, floors, and drywall can be 

replaced, other components dried out, and the remainder of the 

structure is likely sound. Floodwaters that fill homes and other 

structures for weeks typically ruin interiors completely. The 

economic decision is whether to repair what remains or demolish the 

structure and start over. The dynamic forces of rapidly moving 

floodwater must also be considered. Water flowing around and 

within a structure can exert great pressure on structural surfaces 

(water flowing at 10 mph exerts the same pressure as wind gusts of 

270 miles per hour (mph)), often causing further damage, even 

structural failure.

10.2.4 Effects on the Civilian Population

10.2.4.1 Displacement 

Major flooding occurring in a metropolitan area or urban area could 

displace tens of thousands of residents who will require shelter. 

10.2.4.2 Casualties

A catastrophic flood can result in more than 1,000 fatalities and 

5,000 people with injuries requiring professional treatment. Required 

emergency medical assistance will include: medical surveillance; 

medical care personnel; health and medical equipment and supplies; 

patient evacuation; in-hospital care; food, drug, and medical device 

safety; occupational and environmental health and safety; 

radiological, chemical, and biological hazards consultation; 

behavioral health care; and public health information. After a flood, 

the civilian population and military personnel may be exposed to 

illnesses spread by contaminated food or drinking water, mosquitoes 

or other insects, and close contact with ill persons. Refer to Chapter 

5, Section 5.12 for more information on medical support. 
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10.3 Flood Missions

Flood missions that may require military-specific skills and 

equipment include the following:

• Assessing damage to roads, bridges, structures, utilities, etc.

• Supporting search and rescue operations with personnel and 

equipment

• Conducting topographic surveys for the extent of flood damage

• Overprinting maps to depict damage, water levels, key facilities, 

search and rescue activities, etc.

• Opening roadways for emergency and medical traffic

• Constructing temporary bridges 

• Clearing debris, mud, etc.

• Restoring critical facilities, services, and utilities

• Demolishing unsafe structures 

• Providing emergency power and/or restoring power to critical 

facilities

• Providing expedient repair of critical distribution systems

• Law enforcement in security operations

• Supporting evacuation of seriously ill or injured patients to 

locations where hospital care or outpatient services are available

• Moving animal carcasses for burning or burial when all other 

private and public resources have been exhausted , and providing 

heavy equipment for burial sites

• Assisting with transportation of equipment, response personnel, 

and affected animals 

• Assisting in disposal of diseased animals based upon guidance 

from United States Department of Agriculture (USDA)

• Assisting with cleaning/disinfecting of vehicles, equipment, and 

facilities 

• Assisting in set-up of temporary staging areas (indoor and 

outdoor) and temporary storage areas

• Assisting in constructing temporary shelter for disaster 

responders; displaced, affected civilians; and emergency services 

personnel

• Assisting in constructing temporary sites in proximity to the 

disaster site for medical support or evacuation transfer, 
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communications node set-up/operation, electrical power 

generation, and logistical support operations 

• Supporting points of distribution for food, water, and medical 

supplies 

10.3.1 Medical and Safety Considerations

10.3.1.1 Physical Injury

Moving debris can cause cuts, scrapes, bruises, and sprains 

especially to the hands, back, knees, and shoulders. Personnel should 

wear leather gloves, safety goggles, and steel-toed shoes and avoid 

lifting more than 50 pounds per person. Tetanus vaccinations should 

be current (within the past 10 years).

10.3.1.2 Exposure to Floodwater

Flooding can cause disruption of water purification and sewage 

disposal systems and overflowing of toxic waste and chemical 

storage sites, which can lead to illness in workers who encounter 

contaminated floodwater. Personnel should observe the following 

precautions:

1. Avoid unnecessary contact with any floodwater.

2. Assume that floodwater is not safe unless authorities have 

specifically declared it safe.

3. Wash hands at every opportunity.

4. Before entering floodwaters, put on plastic or rubber gloves, 

boots, and other protective clothing.

Double gloving with a waterproof glove under a heavy work 

glove is the best way to protect the hands from both cuts and 

scrapes and floodwater exposure. Boots and rain gear can be 

used to prevent lower body skin exposures.

Avoid working alone and wear a Coast Guard-approved life 

jacket or buoyant work vest when entering flood waters or 

working over or near flood waters.
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10.3.1.3 Unstable Structures

Flood waters can damage walkways, parking lots, roads, buildings, 

and open fields. Personnel should not work around any flooddamaged structure until it has been certified as safe by an engineer or 

architect. They should assume all structures are unsafe until they are 

inspected and leave at once if shifting or noise signals a possible 

collapse.

10.3.1.4 Downed Power Lines

Water and electricity do not mix. Personnel can be exposed to 

serious injury or death as the result of downed power lines in the 

work zone. Only trained electricians and utility workers should 

approach or handle electrical lines. All other response workers 

should avoid going near downed lines and should treat them as if 

energized.

10.3.1.5 Hazardous Materials:

Flood waters may dislodge tanks, drums, and pipes containing 

Hazardous Materials (HAZMAT). The local fire department or 

HAZMAT team should be contacted before unidentified containers 

are moved. Personnel working in contaminated areas should wear 

protective clothing and respirators and wash exposed skin areas 

frequently.

10.3.1.6 Heat and Cold Stress

In a hot environment, personnel should take the following 

precautions:

1. Start physical exertion slowly and gradually increase intensity 

and duration. Full heat acclimatization takes 7-14 days of 

physical exertion in the heat.

2. Drink enough water to replace sweat loss. If urine becomes dark 

yellow and infrequent, drink more fluid.

3. Use work-rest cycles and, when possible, work during the cooler 

hours of the day. 

4. Seek medical attention for heat cramps, exhaustion, or stroke.

5. Use sunscreen.
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In a cold environment, personnel should take these precautions:

1. Remember C-O-L-D: keep clothing Clean, avoid Overheating, 

wear clothing Loose and in layers, and keep clothing Dry.

2. Standing or working in water that is cooler than 75° F will 

remove body heat faster than it can be replaced and can result in 

hypothermia. Take frequent breaks out of the water.

3. Change socks frequently to keep feet dry.

4. Use the buddy system to check for signs of cold injury.

5. Seek medical help for loss of sensitivity in any body part, mental 

slowness, or uncontrollable shivering.

10.3.1.7 Insects

Initially, most insects are displaced by a storm. However, mosquitoes 

and flies will rebound at significantly higher levels. Bites from 

spiders, mosquitoes, and other insects can cause illness and lead to 

infected wounds. Personnel should shake out their clothing before 

getting dressed and check their boots before putting them on.

Where possible, boots should be placed off the ground or inside a 

waterproof bag or other container. Personnel should wear the 

appropriate seasonal uniform with the sleeves down and apply 

repellent in accordance with the Department of Defense (DoD) insect 

repellent system. If possible, use insect repellents that contain DEET

(N, N-Diethyl-meta-toluamide).

10.3.1.8 Displaced Animals

Stress can change the temperament of normally friendly pets. Wild 

and domesticated animals will seek shelter in unusual places to avoid 

the rising waters. Do not handle displaced animals. Do not keep 

pets/mascots. Contact animal control specialists for help.

10.3.2 Dealing with Human Remains

In disasters, there is the possibility of coming in contact with people 

who have died under tragic circumstances. Leave remains in place 

and notify mortuary affairs or your chain-of-command. Note that 

human and animal remains do not pose a disease threat for people 
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not directly involved with recovery. If you do work directly with 

remains:

1. Wear latex or similar gloves with a cut-proof inner glove.

2. Use screens and barriers to restrict view of casualties.

3. Treat casualties with respect at all times.

4. Do not keep emotions inside. They are normal and are best 

worked through by talking with the team. Do not hesitate to talk 

with a chaplain or with a mental health provider in your area.

10.4 Planning Factors

In addition to all-hazards planning factors in Chapter 5, the following 

are specific to flood missions. 

A detailed Suggested Individual Equipment Matrix is located in 

Annex C.

10.4.1 Phase 1 - Assessment and Preparation/Mobilization

 Alert commander and staff of potential flood and begin mission 

analysis. (A/N/S-3/5/7)

 Determine and assist in coordinating any special training 

required by local authorities prior to beginning the mission. 

(Commander, A/N/S-3/5/7)

 If your mission assignment directs evacuee transport, plan for 

transport to unaffected areas. Plans should include (Commander, 

A/N/S 4-8):

o Cargo straps and safety restraints

o Medical personnel available or embedded to assist with 

evacuee transport

o Location of central evacuation point

o Availability of medical personnel

o Availability of shelter

DoD mass evacuation will normally be led by United States 

Transportation Command (USTRANSCOM); however, there 

may be a request to support local transport to the Aerial Port 

of Debarkation (APOD).
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 Plan to deploy with hand tools for breaking up building 

materials. Ensure units have sufficient sledge hammers, shovels 

and picks. (Commander, A/N/S-4/8)

 Plan security for your resources. (A/N/S-4/8)

 Develop strategy in coordination with Defense Coordinating 

Officer (DCO)/Joint Force Commander (JFC) or Joint Force 

Headquarters (JFHQ) to address request from NonGovernmental Agencies (NGOs) requiring external support (e.g., 

transportation, security) to distribute supplies. (A/N/S-4/8)

 Request handheld radios in 700 to 800 Megahertz (MHz) 

bandwidth before departing home station. These radios may be 

provided by FEMA, when available. Determine battery 

requirements and resupply strategy. (Some radios require up to 

10 AA batteries in 24 hours). (A/N/S-4/8 and A/N/S-6) 

 Power generation equipment will be a high demand critical asset.

Plan for Class III requirements for these assets (package and 

bulk). (A/N/S-4/8)

10.4.2 Phase 2 - Deployment

 See Chapter 5 for planning considerations for all hazards.

 Review medical considerations in Chapter 5, Section 5.12. (All) 

10.4.3 Phase 3 - Support of Civil Authorities 

 Monitor current operations and acquire and communicate 

operational-level information status as required. (A/N/S-3)

 Ensure personnel are issued appropriate uniforms and 

equipment. (A/N/S-4)

 Ensure personnel have a safe working environment. Review 

Section 10.3.1. (Commander, A/N/S-3) 

 For all missions, forces should maintain coordination with 

Defense Coordinating Element (DCE)/JTF and JFHQ-State on 

status of activities undertaken to support civil authorities.

(Commander, A/N/S/-3/5/7)

 Work through your Liaison Officer (LNO) to obtain the 

communications plan for the affected area. (A/N/S-6)
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 Coordinate with other military counterparts who have the 

capability to interface with the civilian first responder network. 

(A/N/S-6)

 Request, distribute, and manage handheld radios. (A/N/S-6)

 Coordinate with the local Incident Commander(s) (IC) to operate 

on assigned frequencies and use appropriate protocols. (A/N/S-6)

 Be prepared to provide key infrastructure assessment support for 

bridge/overpass inspections. (Engineer Units)

 If applicable, you may be tasked to conduct bridging operations 

to replace critical infrastructure. (Engineer Bridge Units)

10.4.4 Re-Deployment/Demobilization

 Complete all investigations, particularly those concerning 

injuries (Line of Duty investigations), vehicle accidents, and lost 

or damaged equipment. (Commander)

 Determine need for post-exposure screening. (Surgeon, A/N/S-1)

 Ensure a complete check of all equipment to determine loss, 

serviceability, cleanliness, and needed repairs in accordance with 

regulatory guidance. (Commander, A/N/S-4)

 Follow proper equipment maintenance procedures for equipment 

used in the vicinity of salt water. (A/N/S-4/8)

 Ensure any Reports of Survey or Statements of Charges are 

submitted for reimbursement. (A/N/S-4)

 In coordination with the Defense Coordinating Element (DCE),

compile all data from support operations including but not 

limited to total man-hours used, number and type of equipment 

used, fuel usage, maintenance performed and equipment lost, 

damaged or destroyed for reimbursement. (All)

10.5 For More Information

The Federal Emergency Management Agency (FEMA) website has 

general information on floods, their formation, resulting damage, etc.

http://www.fema.gov/hazard/hurricane/index.shtm

The Centers for Disease Control (CDC) website has updated 

information on floods and other natural disasters.

http://emergency.cdc.gov/disasters/hurricanes/
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The United States Army Combat Readiness/Safety Center website

https://safety.army.mil/

LNOs assigned to the state Emergency Operations Center (EOC)

may coordinate with the state‘s Department of Natural Resources to 

access flood stages and saturation points/levels.

NOTES
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Appendix 10.A: Military Vehicle Fording Depths and 

Limitations

High Mobility Multipurpose Wheeled Vehicle (HMMWV)

Maximum fording depth: 30 inches without deep water fording kit 

installed.

Maximum fording depth: 60 inches with deep water fording kit 

installed. 
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Marine Corps HMMWV exiting a vessel

Marine Corps HMMWV fording a lake

Marine Corps HMMWV fording a river
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M915

Maximum fording depth: 20 inches. 

M1070 Heavy Equipment Transporter (HET)

Maximum fording depth: 28 inches 
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Family of Medium Tactical Vehicles (FMTV) All Variants

Maximum fording depth: 20 inches with electric fan engaged;

30 inches with electric fan disengaged 

Heavy Expanded Mobility Tactical Truck (HEMTT) and

Palletized Load System (PLS)

Maximum fording depth: 48 inches, determined by fording depth 

indicator in over the crest window 
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HEMTT Fording Depth Indicator:

MK23/MK25 United States Marine Corps

Maximum fording depth: 60 inches 
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CHAPTER 11: WINTER STORM

This chapter provides information specific to winter 

storms. Included are the health hazards associated with 

cold weather extremes, examples of missions, secondary 

hazards which may be encountered during and after a 

storm, and staff planning factors for winter storms. 

11.1 Introduction

Winter storms occur annually in many parts of the United States. 

Though generally a predictable natural hazard, winter storms can be 

extremely dangerous. Heavy rain, strong thunderstorms, and 

tornadoes can occur in addition to snowfall, often to the south of the 

snow-producing part of the storm.

Depending upon the geographic location and resources of affected

localities, winter storms can be either routine or immobilizing and 

deadly. While citizens of Minneapolis, Minnesota might barely 

notice a snow storm of five inches, the same amount of snow could

shut down Atlanta, Georgia, for at least a day. Military personnel 

will be assigned to support civilian authorities during/after a winter 

storm only when weather conditions and precipitation exceed the 

norm for the area. In such instances, units can expect to see an underprepared population and inadequate civilian resources. 

Military support in response to winter storms usually comes from the 

local National Guard at the direction of the governor (either in a 

State Active Duty or Title 32 status). Title 10 support is rarely 

required and normally is used only in response to a Memorandum of 

Understanding (MOU) between a federal installation and the local 

regional civilian leadership. 

Winter storms are generally ranked by amount of snowfall, but other 

storm characteristics often determine their true danger. The ―Storm 

of the Century‖ in March 1993 is such a case. Although not topranked by snowfall, it was by far the worst overall winter storm in 

the Nation‘s history and shows the true potential dangers of winter 

storms.
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From The Big One! March 12-14, 1993 "Storm of the Century" by 

Neal Lott, Physical Scientist, National Climatic Data Center Research 

Customer Service Group Technical Report 93-01, May 14, 1993

Following are highlights of information gathered about the storm:

• The death toll for the United States was approximately 270.

• Curfews were enforced. The National Guard was deployed in many 

areas to protect lives and property. 

• Generally, all interstate highways north of Atlanta were closed. 

• For the first time, every major airport on the east coast was closed at 

one time or another by the storm. 

• Central New Jersey reported 2.5 inches of sleet on top of 12 inches 

of snow—somewhat of an "ice-cream sandwich" effect. 

• Hundreds of roof collapses occurred due to the weight of the heavy,

wet snow. 

• At one time, over 3 million customers were without electricity.

• At least 18 homes fell into the sea on Long Island due to the 

pounding surf. About 200 homes along North Carolina's Outer 

Banks were damaged and left uninhabitable. 

• Florida was struck by an estimated 15 tornadoes, causing 44 deaths. 

A 12-foot storm surge in Taylor County resulted in at least 7 deaths.

• About 110 miles south of Cape Sable Island, Nova Scotia, a 177-

meter ship sank in heavy seas, with all 33 of its crew lost at sea. 

65-foot waves were reported in the area. 

• The National Weather Service estimated that 44 million acre-feet of 

water fell as snow. This is comparable to 40 days' flow on the 

Mississippi River at New Orleans. 

• The insured property damages exceeded $1.6 billion. Therefore, this 

was the 4

th costliest storm in U.S. history and by far the most costly 

extra-tropical storm. 

11.2 Disaster-specific Information 

11.2.1 Winter Storm Terminology

Winter Weather Advisory: Issued for accumulations of snow, 

freezing rain, freezing drizzle, and sleet that will cause significant 
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inconveniences and, if caution is not exercised, could lead to lifethreatening situations.

Winter Storm Outlook: Issued 3 to 5 days in advance of a winter 

storm and prior to a Winter Storm Watch. Forecasters believe winter 

storm conditions are possible.

Winter Storm Watch: Usually issued 12 to 48 hours before the 

beginning of a winter storm, alerting the public to the possibility of a 

blizzard, heavy snow, heavy freezing rain, or heavy sleet. 

Winter Storm Warning: Issued when hazardous winter weather in 

the form of heavy snow, heavy freezing rain, or heavy sleet is 

imminent or occurring. Winter Storm Warnings are usually issued 12 

to 24 hours before the event is expected to begin.

Typical beginning of winter storm. Roads are still passable at this stage.

Blizzard Warning: Issued for sustained or gusty winds of 35 miles 

per hour (mph) or more, and falling or blowing snow creating 

visibilities at or below one-quarter mile. These conditions should 

persist for at least three hours.
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Lake Effect Snow Warning: Issued when heavy lake effect snow is 

imminent or occurring.

Lake Effect Snow Advisory: Issued when accumulation of lake 

effect snow will cause significant inconvenience.

Wind Chill Warning: Issued when wind chill temperatures are 

expected to be hazardous to life within several minutes of exposure.

Wind Chill Advisory: Issued when wind chill temperatures are 

expected to be a significant inconvenience to life with prolonged 

exposure, and, if caution is not exercised, could lead to hazardous 

exposure.

Dense Fog Advisory: Issued when fog will reduce visibility to onequarter mile or less over a widespread area.

Snow Flurries: Light snow falls for short durations. No 

accumulation or only a light dusting is expected.

Snow Showers: Snow falls at varying intensities for brief periods of 

time. Some accumulation is possible.

Snow Squalls: Brief, intense snow showers are accompanied by 

strong, gusty winds. Accumulation may be significant. Snow squalls 

are best known in the Great Lakes region.

Blowing Snow: Wind-driven snow reduces visibility and causes 

significant drifting. Blowing snow may be snow that is falling and/or 

loose snow on the ground picked up by the wind.

Sleet: Rain drops freeze into ice pellets before reaching the ground. 

Sleet usually bounces when hitting a surface and does not stick to 

objects. However, it can accumulate like snow and is particularly 

hazardous for motorists.

Freezing Rain: Rain falls on a surface with a temperature below 

freezing. The rain freezes to surfaces such as trees, cars, and roads 

and forms a coating or glaze of ice. Even small accumulations of ice 

can cause a significant hazard.
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11.2.2 Anatomy of a Winter Storm

All winter storms have three key components, cold air, precipitation, 

and lift and air pressure.

For snow and ice to form, the temperature must be below freezing in 

the clouds and near the ground. Air can be layered by altitude with 

different temperatures. The temperature of the air that moisture falls 

through will determine the type of precipitation that hits the ground. 

Even though the air temperature is slightly above freezing, the 

precipitation may be frozen. The ground temperature determines 

whether or not frozen precipitation sticks and accumulates once it 

falls.

Any frozen precipitation, e.g. sleet or freezing rain, can be 

dangerous. Evaporating water from bodies of water, such as a large 

lake or the ocean, is an excellent source of moisture for precipitation.

A storm does not have to have snow to cause damage.

Lift causes moisture to rise and form clouds and precipitation. An

example of lift is warm air colliding with cold air and being forced to 

rise. Air pressure systems interact with each other determining the 

storm track and impacting wind speed.

11.2.3 Related Disasters

Winter storm-related disasters can result in significant damage and 

loss of life. Winter storms can generate coastal flooding. Winds 

generated by intense winter storms can cause widespread tidal 

flooding and severe beach erosion along coastal areas.

Long cold spells cause rivers and lakes to freeze. A rise in the water 

level or a thaw breaks the ice into large chunks which become 

jammed at manmade and natural obstructions. Ice jams act as a dam, 

causing severe flooding. In addition, sudden melting of a heavy snow 

pack often leads to flooding.

Downed power lines and frequent use of residential fireplaces can 

spark fires, and snow restricted mobility may delay local fire/rescue 

response to fires. 
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11.2.4 Health Dangers from Winter Storms

Unlike other natural disasters where the event generally 

ends prior to arrival of military support (e.g. hurricane and 

tornado), winter storms continue to pose health dangers for 

a period of time after the weather system has passed.

Military personnel should wear proper attire and take action

to mitigate this danger.

11.2.4.1 Extreme Cold 

Extreme cold is especially dangerous to stranded individuals and 

those without shelter or who live in homes that are poorly insulated 

or without heat. Tightly woven, wind-resistant outer clothing 

combats cold temperatures and reduces loss of body heat caused by 

wind. Wool, silk, or polypropylene inner layers of clothing hold 

more body heat than cotton. 

Wet clothing chills the body rapidly. Remove extra layers 

of clothing as excess perspiration will increase heat loss.

Do not ignore shivering. It is an important first sign that 

the body is losing heat. Go indoors.

Avoid getting gasoline or alcohol on the skin while deicing or fueling a vehicle or using a snow blower. These 

materials in contact with the skin greatly increase heat loss 

from the body. 

11.2.4.2 Hypothermia

Hyperthermia is abnormally low body temperature resulting from 

prolonged exposure to cold that uses up the body‘s stored energy.

Low body temperature affects the brain, leaving the victim unable to 

think clearly or move well. This makes hypothermia particularly 

dangerous because the victim may not know what is happening and 

will not be able to take appropriate action.
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Hypothermia is likely at very cold temperatures, but it can occur 

even at cool temperatures (above 40°F) if an individual becomes 

chilled from rain, sweat, or submersion in cold water. Warning signs 

of hypothermia in adults include:

• Shivering

• Exhaustion 

• Confusion

• Fumbling hands 

• Memory loss

• Slurred speech 

• Drowsiness 

In infants and children, warning signs are:

• Bright red, cold skin 

• Very low energy 

Body temperature below 95° indicates an emergency and requires 

immediate medical attention. Treat hyperthermia victims by taking 

the following steps:

1. Get the victim into a warm room or shelter. 

2. Remove any wet clothing. 

3. Warm the center of the body first—chest, neck, head, and 

groin—using an electric blanket if available, or use skin-to-skin 

contact under loose, dry layers of blankets, clothing, towels, or 

sheets. 

4. Give warm beverages to help increase the body temperature but 

do not give alcoholic beverages. Do not try to give beverages to 

an unconscious person. 

5. After body temperature has increased, keep the victim dry and 

wrapped in a warm blanket, including the head and neck. 

6. Get medical attention as soon as possible. 

A person with severe hypothermia may be unconscious and may not 

seem to have a pulse or to be breathing. In this case, handle the 

victim gently and get immediate emergency assistance. Even if the 

victim appears dead, cardiopulmonary resuscitation (CPR) should be 

administered. CPR should continue while the victim is being 

warmed, until the victim responds, or medical aid becomes available. 
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In some cases, hypothermia victims who appear to be dead can be 

successfully resuscitated.

11.2.4.3 Frostbite

Frostbite is an injury to the body caused by freezing. Frostbite is 

indicated by a loss of feeling and color in affected areas, most often 

affecting the nose, ears, cheeks, chin, fingers, or toes. Frostbite can 

permanently damage the body, and severe cases can lead to 

amputation of affected limbs. The risk of frostbite increases in 

people with reduced blood circulation and among those who are not 

dressed properly for extremely cold temperatures.

Because frostbite and hypothermia both result from exposure, 

victims should first be assessed and treated for hyperthermia as it is 

a more serious medical condition and requires emergency medical 

assistance. If there are symptoms of frostbite but not of hypothermia 

and immediate medical care is not available, victims should be 

treated as follows:

1. Get the victim to a warm room as soon as possible. 

2. Keep the victim with frostbitten feet or toes from walking unless 

absolutely necessary as this increases damage. 

3. Immerse the affected area in cool, not hot, water. Temperature 

should be comfortable to the touch for unaffected parts of the 

body. 

4. Warm the affected area using body heat. For example, the heat 

of an armpit can be used to warm frostbitten fingers. 

Do not massage the frostbitten area or rub with snow as this 

can cause more damage. Do not use a heating pad, heat 

lamp, or the heat of a stove, fireplace, or radiator for 

warming. Affected areas are numb and can be easily burned.

These procedures are not substitutes for proper medical care. 

Hypothermia is a medical emergency and frostbite should be 

evaluated by a health care provider. It is a good idea to take a first 

aid and emergency resuscitation (CPR) course to prepare for cold-
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weather health problems. Knowing what to do is an important part of 

protecting your health and the health of others.

Table 11-1. Wind Chill Chart with Time until Frostbite

Wind Chill Factor

30 min. 10 min. 5 min.

Wind 

Speed 

(mph)

Actual Air Temperature oF

40o 30o 20o 10o 0o 10o 20o 30o 40o

10 34 21 9 -4 -16 -28 -41 -53 -66

20 30 17 4 -9 -22 -35 -48 -61 -74

30 28 15 1 -12 -26 -39 -53 -67 -80

40 27 13 -1 -15 -29 -43 -57 -71 -84

50 26 12 -3 -17 -31 -45 -60 -74 -88

60 25 10 -4 -19 -33 -48 -62 -76 -91

11.2.4.4 Wind Chill

The Wind Chill Index expresses the temperature the body feels when 

air temperature is combined with wind speed. It is based on the rate 

of heat loss from exposed skin caused by the effects of wind and 

cold. As the speed of the wind increases, heat is carried away from 

the body much more quickly, causing skin temperature to drop. With

high winds, even when temperatures are only cool, serious weatherrelated health problems are more likely. The Wind Chill Chart in 

Table 11-1 shows the difference between actual air temperature and 

perceived temperature, and the amount of time until frostbite occurs.

11.2.4.5 Vehicular Injuries

Driving in wintry conditions can be extremely dangerous. Military 

personnel should take care in maneuvering military vehicles to avoid 

Frostbite Time:
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getting stuck, striking other vehicles/objects, tipping over, and/or 

causing personal/property damage. Conducting winter weather driver

training prior to deployment is ideal, but at a minimum, military 

drivers need remember the following:

1. When icing is possible (visible or not), slow speed is paramount.

2. Slow/moderate but steady speed helps prevent vehicles from 

getting stuck.

3. Always wear safety belts.

4. Keep windshields clear and keep fluid levels full.

5. In poor visibility, slow speed.

6. If vehicle is immobilized in blizzard or poor visibility conditions, 

stay with vehicle, radio for assistance, and take action to avoid 

carbon monoxide poisoning. Run the motor (and heater) for 

about 10 minutes per hour, opening one window slightly to let in 

air. Make sure that snow is not blocking the exhaust pipe.

Four-wheel drive will help you maneuver and keep moving 

in snow/ice. It will not help you stop! 

11.2.4.6 Exertion

Cold weather puts an extra strain on the heart. Those with heart

disease or high blood pressure should follow doctor‘s advice about 

shoveling snow or performing other hard work in the cold. Heavy 

outdoor chores require warm clothing and work at a slow pace as the 

body is working hard just to stay warm.

11.2.4.7 Ice

Walking on ice is extremely dangerous. Many cold-weather injuries 

result from falls on ice-covered sidewalks, steps, driveways, and 

porches. Rock salt or another chemical de-icing compound helps to 

keep steps and walkways free of ice. Sand may also be used on 

walkways to reduce the risk of slipping.

11.2.4.8 Carbon Monoxide Poisoning

Carbon monoxide is an odorless, colorless gas that can cause sudden 

illness and death if inhaled. During power outages, the use of 
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alternative sources of fuel or electricity for heating or cooking can 

cause carbon monoxide to build up in a home, garage, or camper and 

to poison the people and animals inside.

One of the most dangerous wintertime sources of carbon monoxide 

is car exhaust. If stranded in a vehicle while keeping the engine on to 

run the heater, ensure the exhaust pipe is clear. If the pipe is clogged 

with snow or other materials, exhaust can back up into the car. 

Any appliance in a home that burns fuel may emit carbon monoxide. 

Gas kitchen ranges and kerosene space heaters may emit carbon 

monoxide if they are not properly ventilated. 

Military personnel should recognize the signs of carbon monoxide 

poisoning in themselves and in the civilians they are assisting. Signs 

of carbon monoxide poisoning include headache, mental confusion, 

and extreme tiredness. Victims should be moved into fresh air and 

receive immediate medical attention. 

11.2.4.9 Electrocution

Snow/ice accumulation on utility poles, power lines, and nearby trees 

can cause live lines to fall. Once lines are down, electricity can be 

transferred by wet snow to create a very large danger area. It is 

extremely difficult to determine which areas are dangerous and 

which are not, so assume all are dangerous.

Always assume power lines are live. Remember water (that 

includes snow) and electricity do not mix!

11.2.4.10 Physical Injury

Winter storms can lead to collapse of buildings, trees, utility poles, 

etc. Moving debris can cause cuts, scrapes, bruises, and sprains 

especially to the hands, back, knees, and shoulders. Wear leather 

gloves, safety goggles, and steel-toed shoes. Avoid lifting more than 

50 pounds per person. Be sure military personnel have had a tetanus 

vaccination with the past 10 years.
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Heavy snow or ice can case trees and other structures to collapse.

11.2.4.11 Unstable Structures

Winter storms can damage walkways, parking lots, roads, and 

buildings. Collapsing roofs are the biggest danger. Assume all 

structures are unsafe until they are inspected. Leave at once if 

shifting or noise signals a possible collapse.

Roof collapse in Virginia at the Fairfax County Fire 

Department following heavy snowfall in February 2010.
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11.2.4.12 Hazardous Materials

Winter storms and freezing temperatures may disrupt pipelines and 

tanks containing Hazardous Materials (HAZMAT) as a result of

traffic accidents, ruptures, and snow clearing equipment. Contact the 

local fire department or HAZMAT team when facing such a hazard. 

In contaminated areas, wear protective clothing and respirators and 

wash exposed skin areas frequently.

If you are not trained and equipped to handle hazardous

materials, stay away from them.

11.2.4.13 Displaced Animals

Stress can change the temperament of normally friendly pets. Wild 

and domesticated animals will seek shelter in unusual places to avoid 

cold/wet/windy weather. Do not handle displaced animals. Do not 

keep pets/mascots. Contact animal control specialists for help.

11.2.5 Effects on the Civilian Population

11.2.5.1 Displacement 

Unlike natural disasters such as hurricanes and earthquakes, winter 

storms do not usually involve the mass displacement of civilians. 

There may be some stranded travelers or civilians needing 

evacuation due to roof collapses/lack of power, but they will be few 

in number. Shelter/sustainment requirements will be addressed by 

civil authorities. The military‘s most likely involvement will be 

providing transportation.

11.2.5.2 Casualties

Casualties in a winter storm will vary in number and severity based 

upon temperature, size and duration of the storm, and size of the 

affected civilian population. Most casualties will be a result of 

exposure to the elements when people are stranded in a vehicle or in 

a home lacking power. Some will result from exertion during snow 

removal, others from carbon monoxide poisoning from poorly 

ventilated generators. In all cases, military personnel should treat 
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casualties with basic first aid and request civil authority assistance as 

soon as possible.

The biggest casualty concern for military personnel in a winter storm 

is internal casualties, which are preventable if precaution is taken. 

Do not underestimate the dangers of winter weather conditions and 

always prepare for the worst contingency. If away from shelter, even 

for a short time, military personnel should have access to cold and 

wet weather gear, and communications equipment.

11.3 Winter Storm Missions

Winter storms may require military support with specific skills and 

equipment to include the following:

• Transporting critical civilians (e.g., medical personnel) and 

civilians in danger (e.g., elderly without power) using military 

vehicles that are better equipped for mobility 

• Assessing damage to roads, bridges, structures, utilities, etc.

• Supporting search and rescue operations with personnel and 

equipment, usually through house-to-house surveys in 

immobilized areas

• Overprinting of maps to depict damage, key facilities, search and 

rescue activities, etc.

• Opening roadways for emergency and medical traffic through 

snow removal and debris clearance, in coordination with local 

authorities

• Providing emergency power and/or restoring power to critical 

facilities

• Law enforcement in security operations in accordance with the 

Posse Comitatus Act

• Supporting evacuation of seriously ill or injured patients to 

locations where hospital care or outpatient services are available

• Supporting points of distribution for food, water, and medical 

supplies

• Assisting with transportation of equipment, response personnel, 

and affected animals

• Assisting in feeding snowbound livestock
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11.4 Planning Factors

In addition to all-hazards planning factors in Chapter 5, the following 

are specific to winter storm missions.

A detailed Suggested Individual Equipment Matrix is located in 

Annex C.

Snow removal is 

one of the primary 

winter storm 

support efforts 

required in DSCA.

11.4.1 Phase 1 - Assessment and Preparation/Mobilization

 Alert commander and staff of potential winter storm and begin 

mission analysis. (A/N/S-3/5/7)

 Begin tracking projected weather conditions in the affected area 

(to include deployment drive-through areas) to cover the time the 

military will be operating there. (A/N/S-2)

 Obtain status of lines of communication, major roads, railroads, 

waterways, ports, and airports in the area from state Department 

of Transportation website or by telephone. (A/N/S-2/3)

 Collect and analyze information to provide the commander with 

an assessment regarding the potential request for resources, the 

magnitude of any potential request, and the military‘s ability to 

meet any anticipated needs by civilian authorities. (A/N/S-3/4)

 Ensure units have appropriate snow removal tools and 

equipment. (A/N/S-4/8)

 Request handheld radios in 700 to 800 Megahertz (MHz) 

bandwidth before departing home station. These radios may be 

provided by the Federal Emergency Management Agency 
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(FEMA), when available. Determine battery requirements and 

resupply strategy. (Some radios use up to 10 AA batteries in 24 

hours). (A/N/S-4/8 and A/N/S-6)

 Power generation equipment will be a high demand critical asset.

Plan for Class III requirements for these assets (package and 

bulk). (A/N/S-4/8)

• Military personnel are not permitted to connect military 

generators to civilian infrastructure. A certified civilian 

electrician must be available to connect the power. Care 

must be taken to ensure that power lines are not reenergized by connecting infrastructure to generators.

11.4.2 Phase 2 - Deployment

 See Chapter 5 for planning considerations for all hazards.

 Review medical considerations in Chapter 5, Section 5.12. (All) 

11.4.3 Phase 3 - Support of Civil Authorities

 Monitor weather conditions to ensure safety of military response 

personnel. (A/N/S-2/3)

 Ensure health protection of all military personnel while 

performing civil support operations in a winter storm 

environment. (Commander)

 When requested, conduct door-to-door surveys of local 

population to identify civilians in need of rescue or supplies. Pay 

particular attention to people without power/heat, with medical 

condition complications, and/or the elderly. Military responders 

may be asked to transport identified people to relief/shelter areas, 

identify areas requiring assistance to civilian authorities, or 

provide supplies. (A/N/S-3)

 When requested, provide road/building clearing assistance 

(individual shoveling, heavy equipment, etc.). Military 

responders do not generally provide debris removal. That 

function is usually contracted privately. (A/N/S-3)

 Conduct interagency coordination and liaison as required. 

(A/N/S-2/3)
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 Coordinate with local Incident Commander(s) (ICs) to operate 

on assigned radio frequencies and use appropriate protocols. 

(A/N/S-6)

 Plan to assist local officials in inspecting buildings for structural 

integrity and completing damage survey reports. (United States 

Army Corps of Engineers (USACE))

 Plan for treatment capabilities to be limited by a shortage of 

medical transport vehicles, a shortage of trained medical 

personnel, and a shortage of medical and blood supplies. (A/N/S3/5/7, Surgeon)

 Plan to coordinate with news media through the Joint 

Information Center (JIC) in order to manage response 

expectations. (Public Affairs Officer (PAO))

11.4.4 Re-Deployment

 Determine need for post-deployment medical assessments. 

(Surgeon, A/N/S-1)

 Ensure a complete check of all property to determine loss, 

serviceability, and need for cleaning and repair in accordance 

with regulatory guidance. (A/N/S-4)

 Follow proper equipment maintenance procedures for equipment 

used in the vicinity of salt water (Salt and other chemicals are 

frequently used in treating snow-covered and icy roads.) (A/N/S4/8)

 Ensure any Reports of Survey or Statements of Charges are 

submitted for reimbursement. (A/N/S-4)

 In coordination with the Defense Coordinating Element (DCE),

compile all data from support operations including but not 

limited to total man-hours used, number and type of equipment

used, fuel usage, maintenance performed and equipment lost, 

damaged or destroyed for reimbursement. (All)

11.5 For More Information

FEMA website

http://www.fema.gov/hazard/winter/index.shtm
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Centers for Disease Control (CDC) website

http://emergency.cdc.gov/disasters/winter/

National Oceanic and Atmospheric Administration (NOAA) website

http://www.noaa.gov/

American Red Cross website

http://www.redcross.org/portal/site/en/menuitem.86f46a12f3822905

17a8f210b80f78a0/?vgnextoid=91435d795323b110VgnVCM10000

089f0870aRCRD&vgnextfmt=default

NOTES
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ANNEX A: LEGAL ASPECTS OF DSCA1

Included in this annex are:

• Section A.1 Background of the Posse Comitatus Act

• Section A.2 Exceptions to Posse Comitatus

• Section A.2.1 Constitutional Exceptions

• Section A.2.2 Statutory Exceptions

• Section A.3 Consequences for Violation of the Posse 

Comitatus Act

• Section A.4 Immediate Response Authority

All readers are advised to consult with their servicing Judge 

Advocate before taking any action based on the authorities 

discussed in this annex.

A.1 Background of the Posse Comitatus Act

The term posse comitatus refers to a group of men above fifteen 

years of age who can be called upon by the local sheriff to enforce 

the law, keep the peace, suppress a riot, and pursue, arrest, search, 

and interrogate criminal suspects. The Posse Comitatus Act (PCA) 

was passed by Congress in 1878 following the election of Rutherford 

B. Hayes as President and the end of Reconstruction. The Act was an 

effort to prevent troops from performing in a law enforcement 

capacity except when authorized by the Constitution or an Act of 

Congress.

The PCA applies to all Title 10 military personnel in four of the five 

components of the Armed Forces—the Army, Navy, Air Force, and 

Marine Corps (and their respective Title 10 Reserves). The PCA

never applies to the fifth component of the Armed Forces, the Coast 

Guard, even when placed under Department of Defense (DoD) 

command.

 

1 The content of this annex is taken from ―Legal Aspects of Defense 

Support of Civil Authorities (DSCA)‖, a briefing developed by Robert F. 

Gonzales, Director, Domestic Operational Law, Office of the Staff Judge 

Advocate, Headquarters, United States Army North.
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The Coast Guard‘s law enforcement authority is not limited 

to the water and may be exercised ashore under certain 

conditions. The cognizant Coast Guard District should be 

consulted to determine exactly what law enforcement and 

homeland security support the Coast Guard can provide on 

an incident-specific basis.

The PCA does not apply to the other two components of the seven 

Uniformed Services—the Commissioned Corps of the Public Health 

Service, and the Commissioned Corps of the National Oceanic and 

Atmospheric Administration (NOAA)—even though both have the 

same rank structure and wear the same uniform as the Navy.

The PCA prohibits federal, state, and local leaders from using federal 

forces for direct civil law enforcement. Prohibited activities include 

searches, seizures, arrests, apprehensions, conducting security 

patrols, crowd and traffic control, and any other similar activities on 

behalf of civilian law enforcement authorities. Prohibiting direct 

military involvement in law enforcement is in keeping with longstanding United States law and policy limiting the military‘s role in 

domestic affairs.

A.2 Exceptions to Posse Comitatus

The Homeland Security Act of 2002 affirmed PCA and recognizes 

that the Armed Forces may not provide direct support to civil law 

enforcement agencies, unless authorized by the Constitution or an 

Act of Congress as an exception to the PCA. Exceptions are 

discussed in Sections A.2.1 and A.2.2 that follow.

A.2.1 Constitutional Exceptions

In Section 886 of the Homeland Security Act of 2002, Congress 

explains that the Constitutional exception to the PCA is grounded in 

the President‘s authority under Articles II and IV of the Constitution. 

The President may exercise this exception when he ―determines that 

the use of the Armed Forces is required to fulfill the President‘s 

obligations under the Constitution to respond promptly in time of 

war, insurrection, or other serious emergency‖ to maintain law and 
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order. The President can activate this Constitutional exception in two 

ways as described.

A.2.1.1 National Emergency Declaration (In re Debs, 158 U.S. 

564 (1895); 50 USC §§ 1601 et seq; 6 USC § 466)

The President has the inherent authority under Articles II and IV of 

the Constitution and statutory authority under Title 50 United States 

Code (USC) Chapter 34, known as the ―National Emergency Act 

(NEA),‖ to preserve order and ensure public health and safety during 

time of war, insurrection, national crisis, or serious emergency, 

according to the necessities of the Nation (see Title 6 USC § 466).

In the face of a serious emergency where the President had no 

special or extraordinary powers granted to him by Congress, the 

President would present the matter to the Congress and request 

immediate legislation that would authorize him to fully cope with the 

threatened crisis. If Congress is unable, fails, or refuses to act in a 

timely manner, the President could act based solely on his inherent 

authority under Article II when no one other than he is immediately 

capable of doing so. In the absence of Congressional authority, the 

validity of the President‘s inherent authority to act alone to use DoD 

forces to perform law enforcement functions would be judged by 

both public and political opinion, and perhaps a judicial decision, 

based on the gravity of the situation confronting the Nation.

Under this very rare and unique emergency circumstance, the 

President may, as a last resort, issue a National Emergency 

Declaration as a Constitutional exception to the PCA. Pursuant to the 

authority to issue a National Emergency Declaration, the President 

could issue an Executive Order under his inherent authority as 

President and direct the Armed Forces to enforce the law in order to 

protect federal facilities, property, and personnel, or protect a 

function of the federal government. 

A National Emergency Declaration is not the same as an 

Emergency Declaration under the Stafford Act. There are some 

statutory checks on a National Emergency Declaration. It will 
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automatically terminate on the first anniversary of the declaration 

unless one of the following occurs:

1. The President renews it within a 90-day period prior to the 

anniversary date by notifying Congress and republishing it in the 

Federal Register.

2. Congress enacts into law a joint resolution terminating it sooner 

than one year.

3. The President issues a proclamation terminating it sooner than 

one year.

A.2.1.2 DoD Official’s Emergency Authority

A derivative of President‘s Constitutional authority in this area is a 

DoD official‘s Emergency Authority (Title 32, Code of Federal 

Regulations (CFR), Section 215.4(c)(1)(i); DoD Directive (DoDD)

3025.12; DoDD 3025.1; and DoDD 5525.5).

Emergency Authority is based on an 1895 Supreme Court case, In re 

Debs, where the Court addressed the extent of the President‘s Article 

II powers under the Constitution. The Court stated, ―If an emergency 

arises, the Army of the Nation and all of its militia are at the service 

of the Nation to compel obedience to the law.‖ 

From this authority, a DoD official may take prompt and vigorous 

action when a sudden and unexpected civil disorder seriously 

endangers life and property or disrupts normal governmental 

functions to such an extent that local authorities are unable to control 

the situation. 

Some of the requirements stated in DoDD 3025.12 to implement this 

authority are the same as immediate response authority. However, 

unlike immediate response authority, there must be a significant civil 

disturbance or similar calamity, i.e. mass group acts of violence and 

disorder prejudicial to the peace and welfare of the public. Also, 

unlike immediate response authority, no request from civil 

authorities is required and law enforcement functions may be 

performed by DoD personnel.

The historical classic example where this authority was exercised is 

the 1906 San Francisco earthquake and fire. The devastation covered 
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many square miles and the city‘s infrastructure and first responders‘

capability were severely crippled. Brigadier General Frederick 

Funston, the Commanding General of the Presidio, deployed troops 

to assist civil law enforcement authorities to stop looting, protect 

federal property, especially the United States Mint whose vaults 

contained $250,000,000 in gold (1/3 of the Nation‘s gold inventory 

at the time), Post Office, and Federal Courthouse. He also deployed 

other troops under his immediate response authority (see paragraph 

A.4) to assist firefighters to save lives and mitigate great property 

damage.

Similar situations occurred with the 1921 San Antonio flood of the 

downtown area and the 1928 Angel Island mutiny in San Francisco 

Bay. In the former, the Commander of Fort Sam Houston deployed 

troops in both a law enforcement capacity (emergency authority) and 

in a humanitarian assistance capacity (immediate response 

authority). In the latter, the Commander of Fort McDowell sent 

troops to restore public order and protect federal property. 

The same notification requirements as for immediate response, to 

both the National Military Command Center (NMCC) and the 

geographical Combatant Commander, are required to be met.

According to DoDD 5525.5, DoDD 3025.12, and DoDD 3025.15, 

the Secretary of Defense (SecDef) retains approval authority for 

requests from civil law enforcement authorities for:

• 50 or more DoD personnel

Currently, if the number is less than 50, then the approval 

authority is no longer the SecDef. Instead, the Assistant 

SecDef (Force Management and Personnel) is the approval 

authority for all other requests for DoD personnel. However, 

be advised that this may change with the new DoDD 3025.dd

and DoD Instruction (DoDI) 3025.ff. There is language in 

the final draft that says the SecDef will retain authority to 

approve any and all requests for support to civilian law 

enforcement agencies.
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• Periods of assignment for more than 30 days

• Any and all DoD intelligence components

• Situations where there is the possibility for the use of lethal force 

by or against DoD forces or confrontation with civilians or 

response to act of terrorism

The Service Secretary has approval authority for requests for:

• Information under 10 USC §371

• Military equipment and facilities under 10 USC §372

• Arms, ammunition, vehicles, vessels, and aircraft

• DoD personnel to provide training or expert advice under 10 

USC §373

• DoD personnel to operate and maintain equipment under 10 

USC §374

• DoD personnel to monitor and communicate the movement of 

air and sea traffic under 10 USC §374

• Any other forms of ―indirect‖ assistance

A General Officer or civilian equivalent may act as the approval 

authority for loans of equipment, facilities, or personnel to law 

enforcement under circumstances described in DoDD 3025.15, 

paragraph 4.7.2.

There is additional guidance in Title 32 CFR, Section 215, entitled 

―Employment of Military Resources in the Event of Civil 

Disturbance.‖ Section 215.9 divides military resources into three 

groups and designates the approval authority for each group. As a 

general rule, the approval authority for groups 1 and 2 lies at the 

Secretarial level. Group 3 resources, such as requests for firefighting 

resources, protective equipment, clothing, communications 

equipment, searchlights, emergency explosive ordnance disposal 

services, and the use of DoD facilities during a civil disturbance 

event may be approved by an installation commander. 

A.2.1.3 Declaration of Martial Law 

Any martial law should be accompanied by a declaration that sets 

forth the details for the following:
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• Full ―public necessity‖ explanation of extraordinary emergency 

circumstances that justify martial law

• Law enforcement powers of the military commander

• Geographical limits of martial law

• Rules of conduct for the population to follow

Title 32 CFR, Part 501, on Department of the Army -

Employment of Troops in Aid of Civil Authorities, provides 

a good summary on martial law. It has been removed from 

Part 501 of Title 32 of the CFR, effective 30 April 2008,

because it is no longer part of the Department of the Army‘s 

planning of operations involving the use of Army resources 

in the control of actual or anticipated civil disturbances. This 

responsibility has been transferred to the Office of the 

Assistant Secretary of Defense for Homeland Defense and 

Americas‘ Security Affairs and, consequently, this Part will 

probably reappear somewhere in 32 CFR 350-399 at some 

future date. 

A.2.2 Statutory Exceptions 

A.2.2.1 Military Support for Civilian Law Enforcement 

Agencies, 10 USC 371-381, DoDD 5525.5

In 1981 Congress passed the Military Support to Civilian Law 

Enforcement Agencies statute, Title 10 USC, Sections 371-379, 

which codified several Federal District Court decisions that found 

the PCA is not an absolute prohibition on DoD involvement with 

civilian law enforcement agencies. DoD personnel may provide 

support to civil law enforcement agencies as long as the support is 

―passive‖ and ―indirect,‖ military personnel do not subsume the role 

of a law enforcement official, and military personnel do not subject 

civilians to compulsory military authority.

Although usually referred to as an exception to the PCA, this Act is 

really a clarification on the types of indirect/passive assistance that 

can be provided to civilian law enforcement authorities. 
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The SecDef or his designee (see DoDD 5525.5) may approve

passive, indirect, non-compulsory support to federal, tribal, state, and 

local law enforcement authorities under Title 10. This support

includes:

§ 371 Information collected during the normal course of training 

or operations concerning violation of a federal or state law

The Chairman of the Joint Chiefs of Staff (CJCS) Standing 

DSCA Execution Order (EXORD), dated 14 August 2009, states, 

―Information collected on U.S. Persons by military personnel in a 

Title 10 USC status during [a DSCA] mission that indicates the 

existence of a threat to life or property or the violation of law will 

be turned over to civilian law enforcement official IAW [in 

accordance with] DoDD 5200.27,  ̳Acquisition of Information 

Concerning Persons and Organizations not Affiliated with the 

Department of Defense,‘ and [Enclosure 2 to] DoDD 5525.5, 

 ̳DoD Cooperation with Civilian Law Enforcement Officials.‘‖ 

However, before sharing foreign or counter-intelligence, DoD 

personnel need to follow the requirements of Procedure 12 of 

DoD Regulation 5240.1-R on the types of permissible assistance. 

§ 372 Use of military equipment, spare parts, supplies, and 

facilities

This includes sensors, protective clothing, and antidotes to 

prepare for and respond to a chemical or biological incident if not 

reasonably available elsewhere.

§ 373 Basic training in the operation and maintenance of 

equipment provided under § 372 

This includes expert advice relevant to §§ 371-374.

§ 374 Personnel to maintain equipment made available to 

federal/ state/local Law Enforcement Agency (LEA)

At the request of a federal LEA, personnel may operate 

detection/monitoring/communications equipment and aerial 

platforms to support enforcement of counter-drug, counter-
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terrorism, and immigration/custom laws. SecDef has plenary 

approval authority.

§ 375 Regulation applying the Posse Comitatus Act to the Army, 

Navy, Air Force, and Marines, and explaining what law 

enforcement activities are authorized by law (DoDD 5525.5)

Congress directed the SecDef to issue a regulation that made the 

PCA applicable to the Navy and Marines, as well as the Army 

and Air Force, and to explain all of the exceptions to the PCA. 

This regulation is DoDD 5525.5, which was issued in 1986. 

Congress recently reaffirmed the application of the PCA to the 

Army, Air Force, Navy, and Marine Corps in the Homeland 

Security Act of 2002.

§ 379 United States Coast Guard Law Enforcement Detachments 

According to Commandant Instruction (COMDTINST) 

M16247.1D and Naval Warfare Publication (NWP) 3-07.4, the 

Coast Guard has dedicated at least 500 personnel to serve as 5 to 

9-person Law Enforcement Detachments (LEDETs) deployed on

United States or foreign naval surface vessels for maritime drug 

interdiction. They enforce the Maritime Drug Law Enforcement 

Act, 46 USC, Appendix, Sections 1901-1904, and provisions of 

international Memoranda of Agreement (MOAs) with foreign 

countries. 

When on surface vessels of the United States Navy, Tactical 

Control (TACON) of the ship transfers from the Navy to the 

LEDET upon a decision to intercept a Vessel of Interest (VOI). 

Pursuant to the PCA, Navy personnel may not perform active, 

direct law enforcement functions, but may assist LEDET 

personnel indirectly by:

• Transporting the boarding party to the VOI

• Providing force protection of boarding party

• Acting as interpreter

• Supplying welding/cutting equipment/assistance on board the 

VOI

• Recording the sequence of events
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• Recovering contraband jettisoned from the VOI

• Effecting damage control to keep the seized VOI afloat

• Refueling/towing/escorting the seized VOI

• Feeding/billeting/maintaining the individuals apprehended on 

the VOI

A.2.2.2 Military Purpose Doctrine, 10 USC § 375, DoDD 5525.5, 

U.S. v. Chon, 210 F.3d 990 (2000) 

One of the exceptions mentioned in DoDD 5525.5 is the ―Military 

Purpose Doctrine.‖ Although this exception on its face does not have 

a direct Constitutional or Act of Congress basis, federal courts have 

validated the exception by recognizing that it is embedded in DoDD

5525.5 and that this directive was required by Congress in Section 

375 of the Military Support to Civil Law Enforcement Act of 1981.

This provision must be used with caution. It does not include action 

taken with the primary purpose of directly and actively aiding 

civilian law enforcement officials that is prohibited by the PCA. As 

long as the DoD unit is performing a legitimate military or foreign 

affairs function, then any law enforcement benefit to civil law 

enforcement authorities will be considered ―incidental‖ and would 

not be a violation of the PCA. 

For example, in 1959 the Girl Scouts asked the Army to provide 

generators and communications equipment to support their Girl 

Scout Round-Up outside of Colorado Springs, Colorado. The Army 

agreed, but also wanted to send a platoon of Military Police (MPs) to 

protect this military equipment by conducting patrols inside and 

along the perimeter of the Round-Up. Would these security patrols 

be a violation of the PCA? No, because the primary purpose for the 

MPs and the patrols would be to protect military property, a 

legitimate military purpose. Consequently, any benefit to the local 

civil law enforcement authorities, such as the patrols serving as a 

deterrent to any criminal activity, would be ―incidental‖ and thus 

permissible. 

There are Department of Justice (DOJ) legal opinions that, in effect, 

provide that the President may expand the ―Military Purpose 
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Doctrine‖ to a ―Federal Purpose Doctrine‖ under his inherent 

authority. The President may use DoD forces, when necessary, to 

protect any federal property, missions, functions, and personnel, to 

include the safeguarding of foreign embassies in the United States 

and its diplomatic personnel as a foreign affairs function of the 

United States.

A.2.2.3 Civil Disturbance Operations 

Insurrection Statutes (formerly the Enforcement of the Laws to 

Restore Public Order Act, which formerly was the Insurrection 

Statutes), Title 10 USC §§ 331-334, Title 10 USC §12406, Title 50 

USC §§ 205-226, Articles I, II, and IV of the Constitution, DoDD 

3025.12

Insurrection Statutes has returned to its original form by replacing 

the short-lived Enforcement of the Laws to Restore Public Order Act 

of 2006. The President may use the militia (National Guard in a Title 

10 status) or the Armed Forces to enforce the law under what is 

known as the Insurrection Statutes. On 6 October 2006, Section 333 

of the Insurrection Statutes was amended by Section 1076 of the 

John Warner National Defense Authorization Act for FY 2007 and 

the statutes were given a new title: ―Enforcement of the Laws to 

Restore Public Order.‖ However, on 28 January 2008, the President 

signed the National Defense Authorization Act for FY 2008 which 

repealed all of the changes made to the Insurrection Statutes in 2006. 

Consequently, the Insurrection Statutes is today as it was before the 

6 October 2006 changes.

The Insurrection Statutes (Title 10 USC §§ 331-335) allow the 

President to use federal forces, to include the National Guard in 

federal service, to perform law enforcement functions to restore law 

and order in a state under three circumstances:

§ 331 If the civil disturbance is against state authority, the state 

legislature or, if not in session, the state governor, must request 

assistance from the President.
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§ 332 If the civil disturbance is against U.S. authority, the 

President may act unilaterally without a request from state or 

local authorities.

§ 333 The President may deploy the Armed Forces unilaterally to 

restore public order when the domestic violence is to such a 

degree that it hinders the execution of federal or state laws that 

protect individual civil rights and state and local authorities are 

either incapable or unwilling to protect these civil rights, or it 

hinders the execution of any federal law or impedes the course of 

justice under federal law. 

In all three situations, under Section 334, the President must first 

issue a ―disperse and retire peaceably‖ proclamation ordering the 

insurgents or those obstructing the enforcement of the laws to stop 

their unlawful behavior within a certain time limit. If the insurrection 

or domestic violence continues beyond the specified limit, the 

President may then direct the SecDef to deploy federal forces to 

support the Attorney General of the United States and the DOJ to 

restore law and order. The Attorney General may designate a Senior 

Civilian Representative of the Attorney General (SCRAG) to 

coordinate the efforts of all federal agencies. The SCRAG has the 

authority to assign missions to DoD forces.

If DoD forces are deployed under the Insurrection Statutes, they 

would be in support of the Attorney General and the DOJ or the 

SCRAG. According to the National Response Framework, the 

Attorney General may also appoint a Senior Federal Law 

Enforcement Officer (SFLEO) to coordinate all federal law 

enforcement activities. In the event of a terrorist incident, the SFLEO 

will be a senior Federal Bureau of Investigation (FBI) official.

President Bush was the last President to exercise this authority, and 

he did so twice: in the aftermath of Hurricane Hugo in the Virgin 

Islands on 20 September 1989, and for the Los Angeles riots on 

1 May 1992. In both cases President Bush told ―all persons engaged 

in such acts of violence and disorder to cease and desist there from 

and to disperse and retire peaceably forthwith.‖ When they did not, 

on the same day, he issued an Executive Order to the SecDef to 
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support the Attorney General in restoring public law and order in the 

Virgin Islands and Los Angeles, respectively.

A.2.2.4 Other Statutory PCA Exceptions

• Presidential Protection Assistance Act of 1976, Notes to 18 

USC § 3056,DoDD 3025.13, Director of the Secret Service (nonreimbursable basis)

This statute is the only one that specifies that any assistance 

provided by DoD to the Secret Service will be on a nonreimbursable basis. DoD forces will protect their Commander-inChief for free.

• Support to Counterdrug Activities to Other Governmental 

Agencies, Section 1004 of the National Defense Authorization 

Act (NDAA) for FY 1991 (thru 2011)

This is the statutory authority that permits law enforcement-type 

activities by Joint Task Force North. This authority is for a 

specific period of time, and Section 1021 of the NDAA FY07 

extended the authority thru 2011. Chairman of the Joint Chiefs 

of Staff Instruction (CJCSI) 3710.01B implements this authority.

• Defense Against Weapons of Mass Destruction Act, 50 USC 

§§ 2301-2369 (Attorney General)

• Enforcement of the Fisheries Conservation and Management 

Act within the fishery conservation zone of the United States, 16 

USC §§ 1801-1883 (Secretary of Commerce)

• Assistance with Crimes against Congressional, Cabinet, and 

Supreme Court Members, 18 USC § 351 (Director, FBI)

• Detail of Members of the Armed Forces to the Department of 

Transportation, 49 USC § 324 (Secretary of Transportation)

• Detail of Members of the Armed Forces to the Department of 

Homeland Security, Homeland Security Act of 2002, Section 

875 (Secretary of Homeland Security)

• Detail of Soldiers for Protection of National Parks, 16 USC 

§§ 23, 78, and 593 (Secretary of the Interior)

• Removal of Persons Unlawfully on an Indian Reservation, 25 

USC § 180 (President)
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• Protection of Foreign Officials, Official Guests, and 

Internationally Protected Persons, 18 USC §§ 112 and 1116 

(Attorney General)

• Organic Act of Guam, 48 USC § 1422 (Governor of Guam), 

Organic Act of the Virgin Islands, 48 USC §1591 (Governor of 

Virgin Islands)

The Governor of Guam or the Virgin Islands may request law 

enforcement assistance from the senior military commander on 

Guam/Virgin Islands in the event of a disaster, invasion, 

insurrection, or rebellion to suppress lawless violence. The 

senior military commander, at his discretion, may respond in a 

manner not disruptive or inconsistent with his federal 

responsibilities. Timely notification through the chain-ofcommand to the Secretary of the Navy (SECNAV) is required by 

SECNAV Instruction (SECNAVINST) 5820.7B. 

A.3 Consequences for Violation of the Posse Comitatus Act

Conviction of violation of the PCA may result in a fine up to 

$250,000 (Federal Sentencing Guidelines in Title 18 USC) and 

confinement for up to two years. 

There may also be a criminal prosecution consequence for a

violation. Any evidence obtained by DoD personnel while assisting 

civil law enforcement authorities in violation of the PCA may be 

inadmissible in a subsequent criminal trial. In DSCA operations, 

DoD personnel should not perform law enforcement functions, such 

as security patrols to prevent looting, because their illegal actions 

may place a successful prosecution of the looters in jeopardy. 

In addition, there may be a civil liability consequence. In DSCA 

operations, DoD personnel should not knowingly perform law 

enforcement functions in violation of the PCA, because the United 

States Attorney General may not certify them as being ―within the 

scope of employment‖ under the Federal Tort Claims Act for any 

injuries, death, or damages they may cause. Thus, they may subject 

themselves to possible personal liability.
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A.4 Immediate Response Authority

Paragraph 4.g of draft DoDD 3025.dd states that:

...military commanders, heads of DoD Components, 

and/or responsible DoD officials may provide an 

immediate response by employing the resources 

under their control, subject to any supplemental 

direction provided by higher headquarters, and 

provide those resources to save lives, prevent human 

suffering, or mitigate great property damage within 

the United States.

To exercise Immediate Response Authority (IRA):

1. Immediate action is required and time does not permit obtaining 

approval from a higher headquarters that has approval authority 

(which means SecDef or in some limited cases, the geographical 

Combatant Commander).

2. There must be a request for assistance from some civil authority, 

be it the mayor, chief of police, fire chief, sheriff, or chief of 

emergency management. This request may initially be made 

orally, but needs to be followed-up in writing. 

3. The only type of assistance that can be provided is to save lives, 

prevent human suffering, or mitigate great property damage. No 

law enforcement activities are authorized. 

4. There is a rule-of-thumb time limit of 72 hours for immediate 

response operations. The 72 hours corresponds with the time 

limit for the response phase (focus is on life-sustaining 

functions) of a DSCA operation. After 72 hours, the response is 

generally no longer considered immediate and falls into the 

category of restoration/recovery.

The CJCS Standing DSCA EXORD, 14 August 09, requires 

coordination with the geographical Combatant Commander 

after 72 hours of employment. The intent of this 

coordination is to either develop an exit strategy or seek 

SecDef approval for continued assistance.
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5. At the same time forces are deployed, notification of the NMCC

thru the chain-of-command is required. The CJCS Standing 

DSCA EXORD also requires notification to the geographical 

Combatant Commander. For Army units, this notification must 

be done ―within two hours‖ per a 5 July 2005 Department of the 

Army (DA) message. For Navy units, this notification must be 

done within two hours per Office of the Chief of Naval 

Operations Instruction (OPNAVINST) 3440.16D. For all other 

DoD units, this must be done within ―a few hours‖ per 

memorandum from Deputy Secretary of Defense Paul Wolfowitz 

dated 25 April 2005, ―SUBJECT: Reporting  ̳Immediate 

Response‘ Requests from Civil Authorities.‖

6. It is preferred that the response be provided on a costreimbursement basis, but reimbursement is not mandatory.

7. United States Northern Command (USNORTHCOM) DSCA 

Concept Plan (CONPLAN) 3501 indicates USNORTHCOM has 

the option to request Operational Control (OPCON) of units 

providing immediate response, which requires SecDef approval. 

If approved, such forces would continue to provide relief, 

presumably under a Mission Assignment (MA) from the Federal 

Emergency Management Agency (FEMA). In doing so, these 

units would then be operating under secretarial authority rather 

than IRA. The USNORTHCOM CONPLAN 3501 also seems to 

imply geographical limits for immediate response, i.e. the 

responding commander/DoD official is ―in the vicinity of the 

incident.‖ 

8. IRA should not be exercised by any commander or DoD official 

after the President has issued a Stafford Act declaration for the 

same event. 

When time does not permit seeking guidance from higher 

headquarters, United States Army Reserve (USAR) 

commanders may approve voluntary USAR participation 

during ―imminent serious conditions‖ in a non-drill, non-pay 

status. Commanders should ensure state and local assets, 

including the State National Guard, are either fully 
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committed or the required assistance is beyond their 

capability, including the ability to respond quickly. Support 

must end when state and local resources have been 

marshaled and arrived on the scene.

IRA applies to the National Guard in Title 10 and Title 32 

status. For State Active Duty National Guardsmen, check 

with each individual State National Guard for guidance.

DoD personnel may provide immediate response to the following:

• Rescue, evacuation, and emergency medical treatment of 

casualties, maintenance or restoration of emergency medical 

capabilities, and safeguarding the public health

• Emergency restoration of essential public services (including 

firefighting, water, communications, transportation, power, and 

fuel)

• Emergency clearance of debris, rubble, and explosive ordnance 

from public facilities and other areas to permit rescue or 

movement of people and restoration of essential services

• Assistance in recovery, identification, registration, and disposal 

of the dead in coordination with the local medical examiner/

coroner

• Monitoring and decontaminating radiological, chemical, and

biological effects; controlling contaminated areas; and reporting 

through national warning and hazard control systems

• Roadway movement control and planning

Roadway movement control may be performed to get IRA 

forces to the scene in order to address the ―imminent serious 

conditions.‖ Although this is a law enforcement activity, this 

type of traffic control serves a military purpose, which is an 

exception to the PCA.

• Safeguarding, collecting, and distributing food, essential 

supplies, and materiel on the basis of critical priorities

• Damage assessment
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Aerial reconnaissance, even by intelligence collection assets, 

may be conducted not only for damage assessment, but also 

for situational awareness, evacuation monitoring, search and 

rescue, Chemical, Biological, Radiological, Nuclear, or highyield Explosives (CBRNE) assessment, hydrographic survey, 

and dynamic ground coordination.

• Interim emergency communications

• Facilitating reestablishment of civil government functions

NOTES
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ANNEX B: STANDING RULES FOR THE USE OF FORCE

Standing Rules for the Use of Force (SRUF) support a variety of 

missions, including all Defense Support of Civil Authorities (DSCA)

and land homeland defense operations. These rules have been 

approved by the Secretary of Defense (SecDef) and are found in 

Enclosures L and N to Chairman of the Joint Chiefs of Staff (CJCS)

Instruction (CJCSI) 3121.01B, 13 June 2005.

There is a difference between Standing Rules of Engagement 

(SROE) and SRUF. Do not confuse the two. SROE is based on 

International Law and the Law of War and provides guidance on 

how to engage the enemy in combat situations outside United States 

territory. SRUF is based on United States Constitutional and 

domestic law and provides guidance to Department of Defense

(DoD) forces on the use of force against civilians on United States 

territory. 

The SRUF cancel the Rules for the Use of Force (RUF) in Garden 

Plot. Garden Plot (the DoD Civil Disturbance Plan) has also been 

superseded in the United States Northern Command 

(USNORTHCOM) Area of Responsibility (AOR) by 

USNORTHCOM Concept Plan (CONPLAN) 3502. The SRUF also 

cancel the RUF in Enclosure 2 to DoD Directive (DoDD) 5210.56, 

―Use of Deadly Force by DoD and Contract Law Enforcement 

Personnel on DoD Installations.‖

Title 10 commanders at every level have the responsibility to teach 

and train their personnel on the SRUF. SRUF cards are left to each 

command to develop and issue based on the SRUF contained in 

Enclosures L and N of CJCSI 3121.01B.

There may also be a difference between the SRUF and the RUF for 

each state‘s National Guard forces. Depending on the state, the State 

RUF may be more or less restrictive than the SRUF. 
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Pursuant to the 2009 CJCS Standing DSCA Execution Order 

(EXORD), commanders must ensure their personnel are 

briefed on the SRUF and issued an SRUF card prior to

deploying from home station for a DSCA mission. Thus, the 

SRUF brief and SRUF card should not be part of the Joint 

Reception, Staging, Onward movement and Integration 

(JRSOI) process at the Base Support Installation (BSI) in the 

Joint Operations Area (JOA). Additionally, National Guard 

commanders in a Title 32 or State Active Duty (SAD) status 

must also ensure that their personnel are briefed on 

applicable State RUF and issued a State RUF card prior to 

deploying from home station for a DSCA mission.

Tables B-1 and B-2 show SecDef-approved SRUF. Table B-1 

presents a ―template‖ version of SRUF developed by Army North 

(ARNORTH) and approved by Army Judge Advocate General 

(JAG) School for commands to follow. Table B-2 is a suggested card 

on a commander‘s responsibilities under SRUF. Table B-3 is an 

example State RUF card for National Guard personnel in a SAD or 

Title 32 status.

Table B-1. Title 10 SRUF Card Template

SRUF Card Template

(Title 10 Forces)

RULE 1: UNIT SELF-DEFENSE – A COMMANDER always has the inherent right and 

obligation to exercise unit self-defense in response to a hostile act or 

demonstrated hostile intent.

RULE 2: INDIVIDUAL SELF-DEFENSE – A SERVICE MEMBER may exercise individual 

self-defense in response to a hostile act or demonstrated hostile intent.

 Rule 2.1: LIMIT ON SELF-DEFENSE – A COMMANDER may limit individual selfdefense by members of his unit.

RULE 3: DE-ESCALATION – When time and circumstances permit, a SERVICE 

MEMBER will give a threatening force warning and an opportunity to withdraw or 

stop the threatening actions before using force.

 Rule 3.1: AVOID CONFRONTATION – Avoid confrontation with individuals who 

pose no threat to the unit, to non-DoD persons in the vicinity, or property 

secured by DoD forces.

 Rule 3.2: NOTIFY CLEA – Increase self-defense posture and notify civilian law 
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enforcement authorities (CLEA) or security agency personnel as soon as practical, 

if confrontation appears likely, civilians are acting in a suspicious manner, or 

immediately after a confrontation.

RULE 4: LIMITATIONS ON THE USE OF FORCE – A SERVICE MEMBER will use force 

of any kind only as a last resort and, if used, the force should be the minimum 

necessary to accomplish the mission.

 Rule 4.1: REASONABLE – Any use of force must be reasonable in intensity, 

duration, and magnitude to counter the threat based on all the circumstances.

 Rule 4.2: SAFETY – Exercise due regard for the safety of innocent bystanders 

when using any type of force.

 Rule 4.3: WARNING SHOTS – Warning shots are NOT authorized.

RULE 5: USE OF NON-DEADLY FORCE – A SERVICE MEMBER may use non-deadly 

force to stop a threat when it is reasonable:

• to control a situation and accomplish the mission,

• to provide protection for himself and other DoD personnel,

• to defend non-DoD persons in the vicinity, but only IF directly related to 

the assigned mission, or

• to defend designated protected property.

RULE 6: USE OF DEADLY FORCE IN SELF-DEFENSE, DEFENSE OF OTHERS, AND 

DEFENSE OF PROPERTY – A SERVICE MEMBER may use deadly force to stop a 

threat only when all lesser means have failed or cannot reasonably be employed 

and it reasonably appears necessary: 

• to protect DoD forces when a commander reasonably believes a person 

poses an imminent threat of death or serious bodily harm,

• to protect yourself and other DoD forces from the imminent threat of 

death or serious bodily harm,

• to protect non-DoD persons in the vicinity from the imminent threat of 

death or serious bodily harm, but only IF directly related to the assigned 

mission,

• to prevent the actual theft or sabotage of assets vital to national security 

or inherently dangerous property, and

• to prevent the sabotage of a national critical infrastructure.

 Rule 6.1: USE OF DEADLY FORCE NOT AUTHORIZED – Deadly force is not 

authorized to disperse a crowd, stop looting, enforce a curfew, or protect nondesignated property. 

RULE 7: USE OF DEADLY FORCE AGAINST A SERIOUS OFFENSE – A SERVICE 

MEMBER may use deadly force, but only IF it is directly related to the assigned 

mission AND it reasonably appears necessary:

• to prevent a serious crime against any person that involves imminent 

threat of death of serious bodily harm,

• to prevent the escape of a prisoner where probable cause indicates he has 

committed or attempted to commit a serious offense and would pose an 
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imminent threat of death or serious bodily harm to DoD forces or others 

in the vicinity,

• to arrest or apprehend a person who, there is probable cause to believe, 

has committed a serious offense that involved imminent threat of death 

or serious bodily harm or sabotage of designated protected property.

RULE 8: USE OF DEADLY FORCE AGAINST A VEHICULAR THREAT – A SERVICE 

MEMBER may fire his weapon at a moving land or water vehicle when he 

reasonably believes the vehicle poses an imminent threat of death or serious 

bodily harm to DoD forces or to non-DoD persons in the vicinity, but only IF doing 

so is directly related to the assigned mission.

RULE 9 INSPECTION OF PERSONNEL ENTERING AND EXITING AREA – A SERVICE 

MEMBER may inspect individuals and property, per command security guidance, 

prior to granting persons or property entry inside a DoD perimeter or secured 

area and upon leaving such an area.

 Rule 9.1 DENIED ACCESS – An individual or property that does not meet the 

command security requirements for entry may be denied access inside a DoD 

perimeter or secured area.

RULE 10: TEMPORARY DETENTION OF THREATENING PERSONNEL – A SERVICE 

MEMBER may temporarily detain an individual:

• who has gained unauthorized access inside perimeters or other secured 

areas, who refuses to depart such an area after being denied access,

• who otherwise threatens the safety and security of DoD forces, property 

secured by DoD forces, or non-DoD persons in the vicinity but only IF their 

defense is directly related to the assigned mission.

 Rule 10.1: SEARCH – Detained individuals, vehicles, and property may be 

searched as a force protection measure.

 Rule 10.2: RELEASED TO CLEA – Detained individuals and any secured property 

will be released to CLEA at the earliest opportunity consistent with mission 

accomplishment.

RULE 11: PURSUIT AND RECOVERY OF STOLEN PROPERTY – A SERVICE MEMBER

may pursue and recover stolen assets vital to national security or inherently 

dangerous property if:

• CLEA or security forces are not reasonably available to recover them, and

• Commander, USNORTHCOM, has pre-authorized the pursue and recovery 

mission, and the pursuit is immediate, continuous, and uninterrupted.

 Rule 11.1: CONTACT CLEA – DoD forces will notify CLEA as soon as practicable 

to inform them of the theft/pursuit.

RULE 12: REPORT VIOLATIONS OF THE SRUF – A SERVICE MEMBER will 

IMMEDIATELY report any violation of or non-compliance with the SRUF to the 

chain-of-command, Inspector General, Judge Advocate, Chaplain, or any 

commissioned officer with information concerning who, what, when, where, and 

why.
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There are clear SRUF requirements in CJCSI 3121.01B that only 

commanders can satisfy. The following is an example of a 

commander‘s SRUF card.

Table B-2. Commander’s SRUF Responsibilities 

Commander’s SRUF Responsibilities

(Title 10 Forces)

RULE 1: TEACH AND TRAIN – A commander must teach, train and implement the 

SRUF to his soldiers. 

RULE 2: UNIT SELF-DEFENSE – A commander retains the inherent right and 

obligation of unit self-defense and defense of other DoD forces in the vicinity in 

response to a hostile act or demonstrated hostile intent.

RULE 3: INDIVIDUAL SELF-DEFENSE – A commander may limit the right of 

individual self-defense. 

RULE 4: COORDINATE SRUF – A commander will coordinate the SRUF with 

civilian law enforcement authorities (CLEA) or security forces when operating in 

conjunction with them to ensure a common understanding. Any RUF issues that 

cannot be resolved will be forwarded to the SECDEF thru the chain-of-command

and CJCS. 

RULE 5: IMMINENT THREAT –A commander will determine if a threat of death or 

serious bodily harm by an individual or motor vehicle is imminent based on an 

assessment of all of the circumstances. If he determines such a threat is

imminent, deadly force is authorized to stop the threat.

RULE 6: INHERENTLY DANGEROUS PROPERTY – A commander may designate

DoD property or property having a DoD nexus as inherently dangerous. This 

includes weapons, ammunition, explosives, portable missiles, rockets, chemical 

agents, and special nuclear materials.

RULE 7: PURSUE AND RECOVER – A commander may not authorize forces to 

pursue and recover a stolen asset vital to national security or inherently 

dangerous property unless delegated this authority by the Commander 

USNORTHCOM. Any pursuit must be immediate, continuous, and uninterrupted.

RULE 8: MISSION-SPECIFIC RUF – A commander may request SECDEF-approval of 

mission-specific or supplemental RUF based on mission requirements thru the 

chain-of-command and CJCS. A commander of a unit detailed to another federal 

agency will ensure his unit is operating under a common mission-specific RUF 

approved by the SECDEF and the federal agency.

RULE 9: IMPOSED RESTRICTIONS – A commander may impose restrictions to the 

SECDEF-approved SRUF or mission-specific RUF, but must notify SECDEF thru the 

chain-of-command and CJCS of imposing the restrictions as soon as practicable. 
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RULE 10: INVESTIGATING VIOLATIONS – A commander will immediately report 

any suspected violation of or non-compliance with the SRUF thru the chain-ofcommand to CDRUSNORTHCOM, attn: SJA, investigate any suspected violation or 

non-compliance and preserve all evidence.

The separate 54 states and territories promulgate separate RUF. The 

template in Table B-3 is provided as a planning aid for deploying 

forces. Commanders in a Title 32 or SAD status must ensure that 

prior to the assumption of any DSCA mission, all personnel are 

briefed on the applicable State RUF. Additionally, relevant State 

RUF cards should be provided to all personnel. 

The National Guard RUF were developed to support domestic 

operations and are constrained or limited by federal, state, and local 

laws. There are no preexisting, overall, stand-alone rules for the use 

of force for domestic disaster relief. Staff officers and military 

leaders need to understand the legal, policy, and practical limitations 

for use. The RUF example in the table below is now being used by 

most states during all-hazard events but still must be reviewed and 

updated by each individual state‘s Judge Advocates (JAs).

Table B-3. Title 32 and SAD National Guard RUF Template

Title 32 and SAD National Guard 

RUF Card Template

RULE 1: MINIMUM FORCE: Military personnel will use only the minimum force 

required to accomplish the mission.

RULE 2: SELF-DEFENSE: Nothing in these Rules for Use of Force (RUF) shall limit a 

commander’s inherent duty to safeguard his/her force or an individual‘s inherent 

right of self-defense. An individual is always authorized and expected to use 

necessary force, proportional to the threat, in self-defense. An individual’s right 

of self defense may be limited by a commander. 

RULE 3: DEADLY FORCE: Deadly force refers to physical force that could reasonably 

result in death, whether or not death is the intent. Discharge of a firearm is always 

considered deadly force. Before resorting to deadly force, all of the following 

conditions must be met:

 a. All other means have been exhausted, are not appropriate, or are not 

reasonably available, including but not limited to restraining, detaining, and 

subduing.

 b. The use of deadly force does not significantly increase the risk of death or 

serious bodily harm to innocent bystanders.
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Deadly force may be used for one or more of the following circumstances:

 a. Self-defense to avoid death or serious bodily harm. Threat of harm is not 

restricted to firearms; it may include assault with large rocks, bricks, pipes or other 

heavy missiles, incendiary and explosive devices, or any other material which could 

be reasonably expected to cause death or serious bodily harm.

 b. Prevention of crime that involves a substantial risk of death or very serious 

bodily harm, including the defense of others (e.g., arson, sniping, and assault).

 c. Detention or prevention of the escape of a person, who during detention, or in 

the act of escape, threatens to kill or cause serious bodily harm to others. Attempt 

to escape by itself does not justify the use of deadly force. Use of deadly force is 

justified only when it is immediately necessary to protect against death or serious

bodily harm. IMPORTANT: Deadly force will be used to stop an immediate threat, 

not to warn. Warning shots are not authorized. Blanks are not authorized.

RULE 4: ARMING ORDERS (AOs): Local commanders will determine which AO to 

use based on mission requirements. Local commanders may modify AOs depending 

on mission, terrain, troop availability, and time availability.

Arming Order Considerations:

 a. In appropriate circumstances, local commanders may authorize deployment of 

troops without weapons.

 b. AOs are not necessarily sequential. Commanders may select the posture most 

appropriate for the potential threat. The minimum necessary force principle will be 

observed when making this decision.

 c. AO-4 and AO-5 may be selected when forces are fired upon. Selected 

marksmen will be directed to return aimed fire.

ARMING ORDER MATRIX

Arming Order Rifle * Pistol Magazine Chamber

AO-2 SLING IN HOLSTER IN WEAPON EMPTY

AO-3 PORT** IN HOLSTER IN POUCH EMPTY

AO-4 PORT** IN HOLSTER IN WEAPON EMPTY

AO-5 PORT** IN HOLSTER IN WEAPON CHAMBERED

* Bayonet posture can be modified by local commanders based on mission, terrain, 

troops available, and time available. 

** “Port arms” is defined as having the rifle at the ready.

RULE 5: WEAPON LIMITATIONS:

 a. Automatic firing is not authorized at any time.

 b. Personnel who are armed must be trained, qualified, and tested on the type of 

weapon issued, in accordance with (IAW) current qualification standards. 

 c. Arms and ammunition will be secured at all times IAW appropriate regulations 
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and policies. Military weapons will not be secured in private dwellings at any time. 

Military weapons will not be transported in privately owned vehicles. 

 d. There will be no deployment of automatic weapons (e.g., M60, squad 

automatic weapons), shotguns, riot batons, or riot control agents, except upon 

expressed order of The Adjutant General (TAG). 

 e. Rounds will be chambered only on order of the commander/senior 

officer/senior non-commissioned officer (NCO) present. 

 f. Only ball ammunition will be issued. Armor piercing rounds will not be issued. 

Blank ammunition will not be issued or fired.

RULE 6: AIRCRAFT AND VEHICLE OPERATIONS:

 a. Firing weapons from aircraft is not authorized. 

 b. Firing weapons from moving vehicles is not authorized unless exigent 

circumstances exist, i.e., self defense/defense of others in a life threatening 

situation.

National Guard Forces are always under the command of National Guard Officers 

or NCOs; we may take mission parameters and goals from civilian authorities, but 

we never give up command and control of our forces.

RULE 7: CHANGES TO RUF: These Rules for the Use of Force (RUF) shall not be 

changed except upon order of TAG or his designee.

ACCEPTABLE MISSIONS

Be prepared to conduct civil disturbance missions. Some examples of acceptable 

missions are:

• Man traffic control points

• Provide point/area security

• Provide security and escort for emergency personnel/equipment

• Show of force 

• Transportation of local law enforcement personnel

• Disperse crowds

• Provide quick reaction/reserve force

• Provide VIP protection/escort

• Joint patrol

• Other missions mutually agreed upon with civil authority

UNACCEPTABLE MISSIONS

Examples of unacceptable missions are:

• Hostage negotiation

• Evidence searches

• Barricaded suspect extraction

• Criminal investigation
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Standing Rules for the Use of Force

SPECIAL ORDERS FOR CIVIL DISTURBANCE OPERATIONS:

1. Always present a neat military appearance and conduct yourself in a manner 

that will be a credit to your unit, the National Guard, and the State.

2. Civilian police make arrests, but you can, if necessary, take into temporary 

custody rioters, looters, or other persons committing serious crimes. Deliver such 

persons to the police or to designated military authorities as soon as possible. 

3. Avoid causing damage to private property unless reasonably necessary to 

perform your assignment.

4. Adhere to the arming orders issued by your chain-of-command.

5. Be courteous to civilians to the maximum extent possible under existing 

conditions.

6. Be respectful to civilians, including those in your custody. Provide or arrange to 

deliver prompt medical attention to persons who are in reasonable need.

7. Do not discuss the operation with others or otherwise violate operational 

security.

8. Allow properly identified reporters, radio and television personnel to move

freely throughout your area unless they interfere with your mission or create a 

substantial risk of harm to yourself or others. Do not discuss your mission with 

members of the media in the absence of a public affairs officer or your 

commander. 
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Standing Rules for the Use of Force

NOTES
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Individual Equipment Matrix

ANNEX C: INDIVIDUAL EQUIPMENT MATRIX

Suggested Individual 

Equipment

Wildfre

Hurricane

Earthquake

Flood

Winter Storm

Utility uniform (minimum of 2 sets 

and 4 maximum)

X X X X X

Combat Boots, Leather (2 pair) (no 

nylon ) X X X X X

Ear plugs w/case X X X X X

Flashlight X X X X X

Case, First Aid X X X X X

Pin-on name tags X

Pin-on rank X

Gortex-like jacket and pants X X X X X

Boot socks (4 pair) X X X X X

Rucksack (without frame) X X X X X

Foot Powder X X X X X

Poncho X X X X X

Chapstick X X X X X

Sunscreen X X X X X
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Individual Equipment Matrix

Suggested Individual 

Equipment

Wildfre

Hurricane

Earthquake

Flood

Winter Storm

Insect repellent X X X X

Medicinal Items X X X X X

Camelbak or 1-quart canteens 

w/covers (2 each) X X X X X

Field Jacket (with liner) X X X X X

Sleeping bag - optional X X X X X

Sleeping pad - optional X X X X X

Wet weather gear X X X X X

Work gloves/winter gloves (with 

liner) (2 pairs) X X X X X

Watch cap X X X X X

Wool scarf X

Balaclava (head and facemask) X

Laundry bags (2 each) X X X X X

Cold weather underwear 

(polypropylene) (2 pair) X X X X

Extreme Cold Weather Clothing 

System X

Intermediate or extreme cold 

weather boots X
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Individual Equipment Matrix

Suggested Individual 

Equipment

Wildfre

Hurricane

Earthquake

Flood

Winter Storm

Personal Protective Equipment (PPE)

Fire resistant shirts* (2 each) X

Fire resistant pants * (2 each) X

Fire shelter with carrying case 

(1 each) X

Hard Hat (1 each) X X X X X

Safety glasses (1 each) X X X X X

Headlamp with batteries (1 each) X

Gloves (1 pair) X X X X X

Flat file and handle (for tool 

sharpening) X

Firefighter web gear/day pack #

(1 each) X

Boots (1 pair) provided by the 

incident X

Coast Guard Approved Lifejacket X X

Helmet, Kevlar ** X X X X X

* Exchanges for wrong sizes will occur at the incident.

** Not all services require helmets. Many incidents may not be appropriate for 

their use because it may give the wrong impression to the public. Use 

commander’s discretion.

# Limited availability. Determination is made at time of order.
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Individual Equipment Matrix

NOTES
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Mission Assignment Review Criteria

ANNEX D: MISSION ASSIGNMENT REVIEW CRITERIA 

D.1 Defense Support of Civil Authorities (DSCA) Review 

Criteria

All Department of Defense (DoD) approval authorities, regardless of 

command level, should apply the following six criteria when 

evaluating a request for DoD assistance from civil authorities. DoD 

policy does not prioritize the criteria.

Legality: What is the legal authority that permits or prohibits the 

assistance requested by civil authorities? If generally prohibited, are 

there any exceptions? Can the restriction be waived by an 

appropriate authority?

Lethality: Is there any potential for the use of lethal force by or 

against DoD forces? If yes, has the Secretary of Defense (SecDef)

approved the carrying of weapons? If yes, has the Combatant 

Commander issued an arming level policy? Will the Standing Rules 

for the Use of Force (SRUF) be sufficient or does a commander need 

to submit supplemental Rules for the Use of Force (RUF) to the 

SecDef for his approval? 

Cost: How much will the assistance cost? Who is going to pay or 

reimburse DoD (not a show-stopper for Immediate Response 

Authority, but may be at the SecDef level)?

Risk: What are the potential health (communicable disease, 

chemical/biological agents) and safety (weather, terrain, 

environmental) risks to DoD forces? Can they be mitigated?

Appropriateness: Who normally performs and is best suited to 

satisfy the request? Have the normal ―first responders‖ been 

engaged? Can and should the support be provided by commercial 

enterprise? Is it appropriate to spend DoD dollars on this request 

under 31 USC §1301? Is DoD the best option?

Readiness: Will the assistance have an adverse impact on the unit‘s 

deployment/training/readiness/primary mission? Can a carefully 

tailored response provide the needed assistance and at the same time 

maintain unit readiness?
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Mission Assignment Review Criteria

The mnemonic CARRLL, shown in Figure D-1, is used by the DoD 

DSCA course and is an easy way to remember the criteria. Though in 

the mnemonic the criteria are not in order as listed in DoD Directive 

(DoDD) 3025.15, the numbers in parentheses in the figure indicate 

their order in the directive, with ―Legality‖ first. 

Review Criteria

(DoDD 3025.15, 18 February 1997)

(CARRLL)

Cost (4)

Appropriateness (5)

Risk (3)

Readiness 6

Legality (1)

Lethality (2)

Figure D-1. DSCA Mission Assignment (MA) Review Criteria
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Request for Assistance/Mission Assignment Process

ANNEX E: REQUEST FOR ASSISTANCE/

MISSION ASSIGNMENT PROCESS

E.1 United States Northern Command
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Request for Assistance/Mission Assignment Process
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Request for Assistance/Mission Assignment Process
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Request for Assistance/Mission Assignment Process
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Request for Assistance/Mission Assignment Process

E.2 United States Pacific Command
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Request for Assistance/Mission Assignment Process

NOTES
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Pre-scripted Mission Assignments and Resource Typing 

ANNEX F: PRE-SCRIPTED MISSION ASSIGNMENTS 

AND RESOURCE TYPING

F.1 Pre-scripted Mission Assignments

The Federal Emergency Management Agency (FEMA) uses Mission 

Assignments (MAs) to request assistance from the Department of 

Defense (DoD), to task other federal agencies, and to provide 

reimbursement for direct assistance during emergencies and 

disasters. In recent years, FEMA has expanded the MA process to 

include Pre-Scripted Mission Assignments (PSMAs). PSMAs 

facilitate a more rapid response by standardizing the process of 

developing MAs. They specify type of assistance required 

(personnel and equipment), statement of work, and provide projected 

cost.

PSMAs are not pre-approved MAs.
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Pre-scripted Mission Assignments and Resource Typing 

In response to a disaster, all requests for DoD assistance are 

evaluated on a case-by-case basis and are subject to the approval of 

the Secretary of Defense. The most recent DoD PSMAs were 

approved on 11 September 2009. These 24 PSMAs are listed in 

Table F-1.

Table F-1. Summary of Approved DoD PSMAs for 2009

Department of Defense PSMAs for 2009

Regional And National 

Activation

1. Activate DoD

ESF #1 – Transportation 2. Rotary Wing Lift (Medium)

3. Rotary Wing Lift (Heavy)

4. Tactical (Ground) Transportation Support

5. Strategic Transportation Support

6. Air Component Coordination Element 

(ACCE)

7. Airborne C2 – Emergency Management 

Support

8. Airspace Control (Ground)

ESF #2 Communications 9. Communications Support to First 

Responders

10. 25 User Communications Package (Fixed 

Site Teams) 

11. 75 User Communications Package 

ESF #3 – Public Works 

And Engineering

12. Emergency Route Clearance 

ESF #5 – Emergency 

Management

13. Aerial Imagery 

14. Full Motion Video Capability

ESF #6 – Mass Care 15. Temporary Housing Sites (Revised)

ESF #7 – Resource 

Support

16. Incident Support Base (ISB)

17. Federal Teams Staging Facility (FTSF) 

18. Fuel Distribution Points – Ground Vehicle
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Pre-scripted Mission Assignments and Resource Typing 

ESF #8 – Public Health 

And Medical Service

19. Rotary Wing Medical Patient Evacuation

20. Temporary Medical Treatment Facilities

21. Theater Patient Movement Capability 

(NDMS Activation) 

22. Mortuary Affairs Assistance 

ESF #9 –Search and 

Rescue

23. Rotary Wing Lift (Medium) for SAR

ESF #15 – External 

Affairs

24. Public Affairs Broadcast Transmission 

Support 

F.2 Resource Typing

First responders may request resources by Type. Resource typing is 

categorization by capability of resources requested, deployed, and 

used in incidents. Assigning a Type 1 level to a resource implies that 

it has a greater level of capability than a Type 2 of the same resource. 

Resource typing is a key component of the National Incident 

Management System (NIMS) and therefore should be understood by 

commanders and their staffs. Resource typing is based on:

• Category—the function for which a resource would be most 

useful, e.g., communications, transportation, firefighting, etc.

• Kind –broad classes that characterize like resources, such as 

teams, personnel, equipment, supplies, vehicles, aircraft, etc.

• Components—the elements that make up a resource (e.g., an

ambulance with two medics)

• Measures—standards that identify capability (e.g., the number of 

patients a disaster medical assistance team can care for per day)

Resource management disciplines:

• Emergency medical services

• Fire services and hazardous materials response

• Incident management

• Law enforcement (in operation)

• Medical/public health (in operation)

• Public works

• Search and rescue

• Veterinary/animal control (in operation)
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Pre-scripted Mission Assignments and Resource Typing 

Figure F-1. Example of FEMA Typing for Army Aircraft
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Tactical Level Commander and Staff Toolkit

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Command Messages and Straight Talk Messages

ANNEX G: COMMAND MESSAGES 

AND STRAIGHT TALK MESSAGES

The following Command Messages and Straight Talk Messages can 

be used as examples when creating public statements or releases in 

response to events.

ACCIDENT

We are currently conducting an investigation to reveal the causes and 

ways to prevent such occurrences in the future. It is extremely 

important to us to fully understand what has happened. Any 

speculation at this point without having all the details could affect 

the outcome of the investigation. 

ALCOHOL USE

The use of alcohol is one of personal choice. Drinking habits that 

adversely affect the member‘s behavior, duty performance, or 

physical and mental health are of official concern. Commanders and 

supervisors will respond to unacceptable behavior or duty 

performance related to alcohol abuse with appropriate actions. 

BOMB THREAT

Our people are our most valuable resource. We take every threat 

seriously. We are increasing our security to protect our people, as 

well as our assets.

CASUALTIES

We regret this unfortunate incident and we wish to express our 

sincerest condolences. Even within this operational environment, the 

safety and security of personnel involved with this mission, directly 

or indirectly, is always a top priority.

COMMUNITY RELATIONS

We are committed to building positive relationships with the 

communities surrounding this installation. Our military families are a 

major part of each community and have a vested interest in its 
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Command Messages and Straight Talk Messages

welfare. We take every opportunity to show we are good neighbors 

and will continue to be a positive force in those communities.

DEMONSTRATIONS

We respect the right of all people to protest. Our mission is to protect 

and defend the Constitution of the United States and that inherently 

means to protect the right to free speech. Our hope is that, should 

individuals invoke their right to demonstrate, that they do so 

peacefully and safely.

DISCRIMINATION

The fair, equitable, and non-discriminatory treatment of members of 

the unit fosters increased morale, productivity, unit cohesion, combat 

readiness and effectiveness of the unit. Unlawful discrimination is 

contrary to good order and discipline and is counterproductive to 

combat readiness and mission accomplishment; therefore, it will not 

be tolerated. 

DRUG USE

Drug use is illegal! Improper use of drugs can damage physical 

health, impair judgment, cause psychological injury, and jeopardize

the personal safety of others. A confirmed drug abuser will be dealt 

with expeditiously. 

ENVIRONMENTAL

As a military institution serving the community, we have a 

responsibility to protect and preserve this environment. Our goals are 

to preserve, restore, and conserve the valuable resource of this land. 

Through professional training and environmental awareness 

programs, we have learned how to protect and enhance the 

environment while fully supporting military missions.

EMBEDDED MEDIA

We are operating in a challenging environment which poses risk to 

personal safety. We acknowledge their bravery in participating in 

this operation with the knowledge that their lives are at risk.
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Command Messages and Straight Talk Messages

EMPLOYER SUPPORT

As the Army and Air National Guard perform a larger share of 

national defense missions, it is our goal to find the right rotational 

structure for each mission. Predictability allows us to optimize 

peacetime participation of our Guardsmen who must balance military 

duties with full-time civilian employment. Employer Support of the 

Guard and Reserve program is the bond, or glue, that holds together 

Employer, Employee and the National Guard unit. Without the 

steadfast support of the Employers, our overall manpower would

suffer tremendously. 

FAMILY SUPPORT

Our Airmen and their families are important to us. We strive to 

provide immediate support to families who are in need. Some 

personnel experience financial hardship when deployed for long 

periods. The Soldiers‘ and Sailors‘ Civil Relief Act provides Service 

members some protections in meeting financial obligations if there is 

disruption to their economic situation because of extended 

deployments. 

FOOD POISONING

Soldiers, Sailors, Airmen, and Marines are our most important 

resource. We are concerned about their health and welfare, and we 

take considerable measures to ensure that food is prepared in a clean 

and sterile environment. We are currently conducting an 

investigation to reveal the cause of the sudden illness. It is extremely 

important for us to understand what has happened.

FUEL OR HAZARDOUS SPILL

As a military institution serving the community, we have a 

responsibility to protect and preserve our environment. We want to 

be good neighbors and are committed to cleaning up any material as 

a result of our operations. 

HOMELAND DEFENSE

Homeland Security is a mission, not the mission. We have a proud 

heritage of answering the call and assisting our communities. Our 
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Command Messages and Straight Talk Messages

first priority must be to remain as the primary first-line ready-reserve 

force for defending America.

HOMOSEXUAL CONDUCT POLICY

We support the DoD policy on this issue. We believe that the worth 

of the individual member is paramount. Commanders must ensure all 

members of the Active Duty, Reserves and National Guard are 

treated with dignity and respect.

HUMAN REMAINS

We express our deepest sympathies to the families and friends. Our 

thoughts and prayers are with them. We are a close-knit family and 

when a tragedy like this occurs, every member of the unit shares the 

loss. We are providing the very best care in honoring those personnel 

who lost their lives in service to their country.

HUMANITARIAN MISSIONS

We are proud to be participating in this humanitarian mission. The 

chance to help alleviate suffering and save lives is extremely 

important. We‘re pleased to be involved in _______________. Our 

people are well equipped and trained for these types of situations. 

Because of that, when called upon, we have the capabilities to 

deliver assistance to areas that need it.

INVESTIGATION

We are currently conducting an investigation to reveal the causes and 

ways to prevent such occurrences in the future. It is extremely 

important to us to fully understand what has happened. Any 

speculation at this point without having all the details could affect 

the outcome of the investigation.

JUSTICE

We are committed to the pursuit of justice. We set high standards for 

our people and we will not tolerate those who fall short of those 

standards. While the final decision has not yet been made, we are 

confident all the facts will be considered and evaluated in an 

impartial manner. The results will be fair and just. Each and every 
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person is entitled to a fair trial by a jury of his/her peers. Any 

comment at this point could jeopardize a fair and impartial trial.

MEDICAL CARE

Our people are our most important resource and we care about their 

health. We have some of the best, highly trained medical 

professionals in the world and we strive to provide the best medical 

treatment to our injured.

MISSION

We assembled the force we believed we needed to accomplish the 

mission. Our force is tailored to handle any contingency. Our 

personnel are the cornerstone of our military and the most vital part 

of any mission. They are well equipped, well trained and superbly 

led. Our military personnel have trained hard for missions such as 

this. They know the dangers involved and are prepared to face them.

PEOPLE

Our people are our most valuable resource. It is our responsibility to 

take the necessary actions to protect our people, as well as our assets. 

Our people are responsible for the success of this mission. We have 

the best and most highly trained people in the world. 

PROTESTORS

We respect the right of organizations to protest and the United States 

has always been and continues to be committed to defending lawful 

freedom of speech and expression. It is our hope that these 

individuals, who have invoked their right to demonstrate, will do so 

peacefully and safely. 

SAFETY

Safety is critical. No one is more concerned with our people than we 

are. We achieve safety through professional training conducted in a 

quality environment. We are proud of our safety record and will 

continue to strive for an accident-free environment during a time of 

increased operational tempo.
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Command Messages and Straight Talk Messages

SEARCH AND RESCUE

We want to assure the families that the U.S. Government is 

expending all necessary resources during this search and rescue 

effort.

SEXUAL HARASSMENT

All personnel are entitled to serve in an environment free from 

sexual harassment. Sexual harassment is a form of gender 

discrimination and will not be tolerated. Allegations of sexual 

harassment will be given prompt attention and resolved as 

expeditiously as possible.

SYMPATHY (CONDOLENCE MESSAGES)

Today we lost a member of our family. We share in the sorrow felt 

by his/her loved ones, and we must not forget the valuable 

contribution he made to his country and the impact he has left on our 

organization. 

We express our deepest sympathies to the families and friends of the 

airmen who lost their lives in service to their country. Our thoughts 

and prayers are with them, and we are providing every comfort and 

assistance that we can to them.

TRAINING

Our forces conduct training in a quality environment and maintain 

the highest levels of proficiency and readiness.
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State TAGs and National Guard POCs

ANNEX H: STATE TAGs AND NATIONAL GUARD POCs

Table H-1. National Guard POCs by State

State Position DSN Commercial

AK DOMS 317-384-4229 907-428-6229

AK JOC 317-384-4365 907-428-6365/7335

AK TAG 317-384-4007 907-428-6007

AL DOMS 363-7207 334-271-7207

AL JOC 363-7753 334-213-7753

AL TAG 363-7200 334-271-7200

AR DOMS 962-5475 501-212-5475

AR JOC 962-5471 501-212-5471

AR TAG 962-5001 501-212-5001

AZ JOC 853-2583 602-267-

2583/2428/2562

AZ TAG 853-2710 602-267-2710

CA JOC 466-3440 916-854-3440

CA TAG 466-3500 916-854-3500

CO JOC 250-1290 720-250-1290/1911

CO TAG 250-1500 720-250-1500

CT DOMS(POMSO) 636-7837 860-524-4824

CT TAG 636 7953 860 524-4953

DC JOC 325-9708 202-685-9708
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State TAGs and National Guard POCs

State Position DSN Commercial

DE JOC 440-7835/7002 302 326-7002

DE TAG 440-7001 302-326-7001

FL JDOMS 822-0430 904-823-0430

FL JOC 822-0459 904-823-0459

FL TAG 822-0101 904-823-0101

GA DOMS 753-3968 678-569-3968

GA JOC 753-3911 678-569-3911

GA TAG 338-6001 678-569-6001

GU DOMS/J3 N/A 671-735-0433

GU JOC 315-344-2323 671-734-4082

GU TAG N/A 671-735-0406

HI DOMS/J3 N/A 808-733-4263

HI JOC 808-733-4263

HI TAG 808-733-4246

IA DOMS 431-4541 515-252-4541

IA JOC 431-4710 515-252-4710/11

IA TAG 431-4211 515-252-4211

ID JOC 272-5755 208-272-5755/4151

ID TAG 422-5242 208-422-5242

IL JOC 555-3941/3945 217-761-3941/3945

IL TAG 555-3500 217-761-3500
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State TAGs and National Guard POCs

State Position DSN Commercial

IN DOMS 312-369-2204 317-247-3204

IN JOC 312-369-2320 317-247-3320

IN TAG 312-369-2559 317-247-3559

KS JOC 720-8117/8126 785-274-

1117/1126/1821

KS TAG 720-8001 785-274-1001

KY DOMS 667-1580 502-607-1580

KY JOC 667-1636/6803 502-607-1636

KY TAG 667-1558 502-607-1558

LA JOC 435-5262 318 290-5262

LA TAG 435-5600 318 641-3858

MA DOMS 256-6802 508-233-6802

MA JOC 256-7213 508-233-7213

MA TAG 256-6552 508-233-6552

MD DOMS 410-702-9063

MD JOC 496-9000 410-702-9000

MD TAG 496-6097 410-576-6097

ME DOMS 626 4551 207-626-4551

ME JOC 626 4429 207-626-4429

ME TAG 626-4205 207-626-4271

MI DOMS (POMSO) 623-5619 517-483-5619
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State TAGs and National Guard POCs

State Position DSN Commercial

MI JOC 623-8031/8032 517-481-8031

MI TAG 623-8083 517-481-8083

MN JOC 825-8860/8861 651-268-8860/8861

MN TAG 825-8924 651-268-8924

MO DOMS 555-9599 573-638-9599

MO TAG 555-9710 573-638-9710

MS DOMS 293-6313 601-313-6313

MS JOC 312-293-6193 601-313-6193

MS TAG 293-6232 601-313-6232

MT JDOMS 324-3166 406-324-3166

MT JOC 324-3000 406-324-3000

MT TAG 324-3010 406-324-3010

NC DOMS 582-9118 919-664-6118

NC JOC 582-9531 919-664-6531

NC TAG 582-9101 919-664-6101

ND J3-DOMS 373-2174 701-333-2174

ND JOC 373-2906 701-333-2906

ND TAG 373-2001 701-333-2001

NE DOMS(POMSO) 279-7395 402 309-7395

NE JOC 279-7400 402-309-7400

NE TAG 279-7099 402-309-7099
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State TAGs and National Guard POCs

State Position DSN Commercial

NH JOC 684-9555 603-227-1555

NH TAG 684-9200 603-225-1200

NJ JOC 445-9010 609-530-7010

NJ TAG 445-7957 609-530-6957

NM JOC 867-9770 505-474-2770/2771

NM TAG 867-8210 505-474-1210

NV JOC 530-7890 775-887-7200

NV TAG 530-7302 775- 887-7302

NY DOMS 489-6110 518-786-6110

NY JOC 489-6104 518-786-6104

NY TAG 489-4502 518-786-4502

OH DOMS 346-7424 614-336-7424

OH JOC 346-7551 614-734-7551

OH TAG 346-7070 614-336-7070

OK DOMS 628-5587 405-228-5587

OK JOC 628-5061 405-228-5061

OK TAG 628-5201 405-228-5201

OR JOC 355-2800 503-584-2800

OR JOC 355-2800 503-584-2800

OR TAG/ DJS 355-3991 503-584-3991
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State TAGs and National Guard POCs

State Position DSN Commercial

PA JOC 491-8932 717-861-8932

PA TAG 491-8500 717-861-8500

PR JOC 787-723-7700/11

PR TAG 787-289-1631

RI DOMS 247-4123

401-275-4123 

401-247-4123

RI JOC 247-4139 401-275-4139

RI TAG 247-4102 401-275-4102

SC JOC 583-4045/6 803-806-4045/6

SC TAG 583-4217 803-806-4217

SD DOMS 747-6772 605-737-6722

SD JOC 747-6032 605-737-6032

SD TAG 747-6702 605-737-6702

TN DOMS 615-313-0750

TN JOC 683-7590 615-313-7590/7593

TN TAG 683-3001 615-313-3001

TX JOC 954-5544 512-782-5544

TX TAG 954-5006 512-782-5006

UT JOC 766-4400 801-432-4400

UT TAG 766-4402 801- 432-4402
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State TAGs and National Guard POCs

State Position DSN Commercial

VA JOC 441-8650 434-292-8650/8656

VA TAG 804-371-2526

VI DOMS 727-7771 340-712-7771

VI JOC 727-7788 340-712-7780/88/89

VI TAG 727-7710 340-712-7710

VT DOMS 636-3342 802-338-3342

VT JOC 636-3050 802-338-3050

VT TAG 636-3124 802-338-3124

WA JOC 323-8130 253-512-8130/8131

WA TAG 323-8201 253-512-8201

WI JOC 745-8400 608-245-8400

WI TAG 724-3003 608-242-3003

WV JOC 623-6444 304-561-6496/44/55

WV TAG 623-6316 304-561-6316

WY DOMS 388-5288 307-772-5288

WY JOC 388-5112 307-772-5112

WY TAG 388-5234 307-772-5234
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State TAGs and National Guard POCs

NOTES
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DCO Contact Information

ANNEX I: DCO CONTACT INFORMATION

Table I-1. Defense Coordinating Officers (DCOs)

Region Location Work 

Number

Cell Number

I Boston MA 617.956.7670 210.247.8968

II New York NY 732.427.4241 210.475.2240

III Philadelphia PA 215.931.5770 210.247.8961

IV Atlanta GA 770.220.5514 210.872.8010

V Chicago IL 312.408.5325 210.475.2228

VI Denton TX 940.591.6421 210.247.8870

VII Kansas City MO 816.926.7333 210.483.3487

VIII Denver CO 303.236.0173 210.569.2541

IX Oakland CA 510.627.7279 210.483.3496

USPACOM Camp W. H. 

Smith HI 808.438.0040 808.551.1071

COMNAVMAR Guam 671.339.5094 671.777.8540

USARPAC Fort Shafter HI 808.228.9282 808.438.0002

X Seattle WA 425.487.4790 210.557.3907
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NOTES
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Reports

ANNEX J: REPORTS

Check-In/Check-Out, Incident Action Planning, Unity of Command, 

Personal Responsibility, Span of Control, and Resource Tracking are 

the principles of accountability. Resource-tracking and mobilization 

processes are directly linked. When resources arrive on scene, they 

must be formally checked in during the Joint Reception, Staging, 

Onward movement and Integration (JRSOI) process. This begins the 

on-scene check -in process and validates that resources have arrived.

Notification is made through the appropriate channels.

This annex provides tools to assist in staff accountability functions: 

Joint Personnel Status and Casualty Report, Logistics Status 

Reporting, and Resource Tracking.

J.1 Joint Personnel Status and Casualty Report

In the event of a disaster, reference Department of Defense 

Instruction (DODI) 3001.02, Personnel Accountability in 

Conjunction With Natural or Manmade Disasters and DODI 

1300.18, DoD Personnel Casualty Matters, Policies, and Procedures

for guidance. 

The Disaster Personnel Accountability systems are as follows for 

Active Duty Military, National Guard, Reserve, Department of the 

Army/Navy Civilians, Non-Appropriated Funds (NAF) Employees, 

OCONUS Contractors and their family members:

• Air Force Personnel Accountability and Assessment System 

(AFPAAS) https://afpaas.af.mil

• Army Disaster Personnel Accountability and Assessment System 

(ADPAAS) https://adpaas.army.mil

• Navy Family Accountability and Assessment System (NFAAS) 

https://navyfamily.navy.mil

Currently there are no systems in place for the Marines and Coast 

Guard.

The Joint Personnel Status and Casualty Report (JPERSTAT) format 

and guidance is found in CJCSM 3150.13, Joint Reporting Structure 
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Reports

- Personnel Manual. An example JPERSTAT form is found on pages 

J-3 through J-5.

J.2 Logistics Status Reporting

The Logistics Status (LOGSTAT) report is designed to provide the 

Commander a daily summary of both positive and negative logistics 

developments which could significantly affect the conduct or 

outcome of operations. Each Task Force and separate unit will 

submit a consolidated LOGSTAT. This report is submitted daily by 

unit A/N/S-4s to the Task Force (TF) A/N/S-4 for consolidation. The 

logistics support unit will submit request for resupply to the Base 

Supporting Installation, if available. LOGSTAT format is on pages 

J-6 through J-12.

J.3 Resource Tracking

All costs (expended resources to include personnel hours) must be 

tracked in great detail to ensure that the Department of Defense is 

reimbursed for cost associated with the execution of approved 

Mission Assignments (MAs). Reimbursement of cost elements varies 

depending on who declared the emergency (President of Governor) 

and how it is resourced (Stafford or Economy Act). Regardless of 

these factors, all units at the tactical level should capture and track

the following: Mission Assignments; Personnel(deployed in support 

of MA); Travel of Personnel; Transportation of Items(equipment and 

supplies); Service Contracts; Consumable Supplies; Equipment and 

Reimbursable Flying Hours; Reimbursable Steaming Days; Other 

Direct Costs. Data should be captured using a series of Excel 

spreadsheets containing the data elements listed, beginning on page 

J-13.
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Reports
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Reports
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Reports
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Reports
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Reports
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Reports
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Reports
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Reports
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Reports
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Reports

RESOURCE TRACKING

For All Costs Include:

Information by MA#

Component

Activity/Unit

POC

Alternate POC

Personnel (OCC 11xx)

Full Name

Rate

Hours

Amount (Rate x Hours)

Dates Worked

Travel of Persons (OCC 21xx) 

Full Name/Organization

Departure Date

Return Date

Total Cost

Travel Voucher Number

Temporary Duty Location

Activity Type (Base, MACOM, MAJCOM, etc.)

Transportation of Things (OCC 22xx)

Description

Ship Date

Origin

Destination

Mode of Transportation

Cost

CBL/GBL #

Service Contracts (OCC 25xx)

Vendor

Contract #
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Reports

DOV

Description of Services

Period of Performance

Amount

Consumables/Supplies (OCC 26xx)

Indicate whether Intra-governmental or commercial purchase

Description

Unit of Issue

Unit cost

Quantity

Total Cost (Unit Cost * Quantity)

Date of Issue

Requisition #

Contract #

Equipment (OCC 31xx)

Vendor

Contract #

Description

Unit of Issue

Unit cost

Quantity

Total Cost (Unit Cost x Quantity)

Disposition Status

Reimbursable Flying Hours

Aircraft Type

Period Dates

Total # of Support Hours

Aviation Fuel Materials (26xx)

Depot Level Repairables (AVDLR) Equipment (31xx)

Consumables (AFM) Materials (26xx)

 Total Flight Hour Cost (Aviation Fuel Materials + Depot Level 

 Repairables + Consumables)

Destination

Purpose
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Reports

Reimbursable Steaming Days

Vessel Type

Period Dates

Total # of Support Hours

Propulsion Fuel Materials (26xx)

Depot Level Repairables Equipment (31xx)

Consumables Materials (26xx)

 Steaming Days Cost (Propulsion Fuel Materials + Depot Level 

Repairables Equipment + Consumables Materials)

Destination

Purpose

Other (Specify OCC)

Vendor

Description

Date of Service/Purchase

Unit Cost

Total Cost

Document/Reference #
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Reports

NOTES
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References

ANNEX K: REFERENCES

The following documents were used in the development of, or are 

referenced in, this handbook and apply to Defense Support of Civil 

Authorities (DSCA) operations:

Constitution / Executive Orders / Public Laws / Statutes

United States Constitution.

6 United States Code (USC) §§ 101-596. Homeland Security Act of 

2002.

10 USC §§ 371–381. Military Support to Civilian Law Enforcement 

Agencies.

10 USC §§ 331–334. Insurrection Act.

14 USC §1. Establishment of Coast Guard.

18 USC §831 (e). Prohibited Transactions involving Nuclear 

Materials. 

18 USC § 1385. The Posse Comitatus Act.

31 USC § 1535. The Economy Act.

32 USC National Guard.

33 USC §701n. Emergency Response to Natural Disasters.

42 USC §§ 5121 et seq. Robert T. Stafford Disaster Relief and 

Emergency Assistance Act.

Instructions / Regulations / Directives

32 Code of Federal Regulations (CFR) § 213.2. Support for nonFederal Entities Authorized to Operate on DoD Installations.

Air Forces Northern (AFNORTH), Airspace Coordination Plan

(ACP).

Air Land Sea Application (ALSA) Center, Civil Support: 

Multiservice Tactics, Techniques, and Procedures for Civil 

Support Operations, December 2007.
DSCA Handbook

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UNCLASSIFIED

References

Chairman of the Joint Chiefs of Staff Standing DSCA EXORD, 14 

August 2009. 

Chairman of the Joint Chiefs of Staff Instruction (CJCSI) 3121.01B,

―Standing Rules of Engagement/Standing Rules for the Use of 

Force for U.S. Forces,‖ 13 June 2005.

Department of Defense, DoD Decision Matrix—Civil Disturbances 

Operations (CDO), December 2008.

Department of Defense 3025.1-M, Manual for Civil Emergencies, 

June 1994.

Department of Defense Directive (DoDD) 1100.20, ―Support and 

Services for Eligible Organizations and Activities Outside the 

Department of Defense,‖ 12 April 2004.

DoDD 1300.18, ―Military Personnel Casualty Matters, Policies and 

Procedures‖, 18 December 2000.

DoDD 1300.22, ―Mortuary Affairs Policy‖, 3 February 2000.

DoDD 1330.5, ―American National Red Cross,‖ 16 August 1969.

DoDD 3000.3, ―Policy for Non-Lethal Weapons,‖ 9 July 1996.

DoDD 3025.1, ―Military Support to Civil Authorities,‖ 15 January 

1993.

DoDD 3025.12, ―Employment of Military Resources in the Event of 

Civil Disturbances,‖ 19 August 1971.

DoDD 3025.15, ―Military Assistance to Civil Authorities,‖ 18 

February 1997.

DoDD 3025.16, ―Military Emergency Preparedness Liaison Officer 

(EPLO) Program,‖ 18 December 2000.

DoDD 3025.dd, DRAFT ―Defense Support of Civil Authorities‖.

DoDD 5200.27, ―Acquisition of Information Concerning Persons 

and Organizations not Affiliated with the Department of 

Defense,‖ 7 January 1980.
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References

DoDD 5111.13, ―Assistant Secretary of Defense for Homeland 

Defense and Americas‘ Security Affairs (ASD(HD&ASA)), 16 

January 2009.

DoDD 5122.5, ―Assistant Secretary of Defense of Public Affairs,‖

17 September 2000.

DoDD 5210.56, ―Use of Deadly Force and the Carrying of Firearms 

by DoD Personnel Engaged in Law Enforcement and Security 

Duties,‖ 1 November 2001.

DoDD 5240.1 ―DoD Intelligence Activities,‖ 25 April 1988.

DoDD 5525.5, ―DoD Cooperation with Civilian Law Enforcement 

Officials,‖ 15 January 1986.

DoDD 6010.22, ―National Disaster Medical System,‖ 21 January 

2003.

DoDD 6490.5, ―Combat Stress Control (CSC) Program,‖ 23 

February 1999.

Department of Defense Financial Management Regulation 7000.14, 

Vol. 12, Chapter 7, ―Liability for Government Property Lost, 

Damaged, or Destroyed,‖ 1 September 1996.

Department of Defense Instruction (DoDI) 3025.ff, DRAFT 

―Defense Support of Civilian Law Enforcement Agencies.

DoDI 4000.19, ―Interservice and Intragovernmental Support,‖ 

9 August 1995.

DoDI 6055.06, ―DoD Fire and Emergency Services Program,‖ 21 

December 2006.

DoDI 6055.07, ―Accident Investigation, Reporting, and Record 

Keeping,‖ (as amended) 24 April 2008.

DoDI 6055.17, ―DoD Installation Emergency Management (IEM) 

Program,‖ 13 January 2009.
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References

Department of Defense Regulation 5240.1-R, ―Procedures 

Governing the Activities of DoD Intelligence Components That 

Affect United States Persons,‖ December 1982.

Department of Homeland Security, National Incident Management 

System, December 2008.

Department of Homeland Security, National Response Framework,

January 2008. 

Department of Homeland Security, National Response Plan: 

Catastrophic Incident Supplement, 2005. 

Department of the Air Force, Air Force Instruction (AFI) 10-802, 

Military Support to Civil Authorities, April 2002.

Department of the Air Force, AFI 36-2910, Line of Duty 

(Misconduct) Determination, 4 October 2002.

Department of the Air Force, AFI 44-153, Critical Incident Stress 

Management, 1 July 1999.

Department of the Air Force, AFI 91-301, Air Force Occupational 

and Environmental Safety, Fire Protection, and Health (AFOSH) 

Program, 1 June 1996.

Department of the Air Force, Air Force Policy Directive 10-8, 

Homeland Defense and Civil Support, Sept 2006. 

Department of the Air Force, U.S. Air Force: Homeland Defense and 

Civil Support (HDCS) CONOPS, 1 March 2006.

Department of the Air Force, U.S. Air Force Homeland Security 

CONOPS, 15 September 2004.

Department of the Army, Army Mobilization Operations Planning 

and Execution System (AMOPES), 22 February 2008.

Department of the Army, Army Regulation (AR) 385-10, The Army 

Safety Program, 3 September 2009.

Department of the Army, AR 600-8-4, Line of Duty Policy, 

Procedures, and Investigations, 4 September 2008.
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References

Department of the Army, Field Manual (FM) 1-05, Religious 

Support, April 2003.

Department of the Army, FM3-04.111, Aviation Brigades, August 

2003.

Department of the Army, FM 3-04.113 (1-113), Utility and 

Helicopter Operations, December 2007.

Department of the Army, FM 3-28, Civil Support Operations

(Signature Draft), 4 June 2010.

Department of the Army, FM 4-02.51, Combat and Operational 

Stress Control, 6 July 2006.

Department of the Army, FM 4-20.64, Mortuary Affairs Operations, 

January 2007.

Department of the Army, FM 5-0, Army Planning and Orders 

Production, January 2005.

Department of the Army, FM 5-19, Composite Risk Management, 21 

August 2006.

Department of the Army, FM 6-0, Mission Command: Command 

and Control of Army Forces, 11 August 2003.

Department of the Army, FM 6-22.5, Combat and Operational 

Stress Control Manual for Leaders and Soldiers, 18 March 

2009.

Department of the Army, FM 8-42, Combat Health Support in 

Stability Operations and Support Operations, 27 October 1997.

Department of the Army Pamphlet 385-10, Army Safety Program, 19 

January 2010.

Department of the Army Pamphlet 385-40, Army Accident 

Investigation and Reporting, 25 February 2010.

Department of the Army, TC 2-91.501, Intelligence Handbook for 

Civil Support Operations (Final Approved Draft ‒ Not for 

Implementation), 12 March 2010.
DSCA Handbook

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References

Department of the Navy, Headquarters United States Marine Corps, 

Marine Corps Doctrinal Publication (MCDP) 1-0, Marine Corps 

Operations, 27 September 2001.

Department of the Navy, Office of the Chief of Naval Operations 

Instruction (OPNAVINST) 3440.16D, Navy Defense Support of 

Civil Authorities Program, 29 June 2009.

Department of the Navy, OPNAVINST 3500.39B, Operational Risk 

Management, 30 July 2004.

Federal Aviation Regulation Part 91, Section 137, ―Temporary Flight 

Restrictions in the Vicinity of Disaster/Hazard Areas.‖

Federal Aviation Regulation Part 99, Section 7, ―Special Security 

Instructions.‖

FM 3-17.2/Navy Tactics, Techniques, and Procedures (NTTP) 3-

02.18/Air Force Tactics, Techniques, and Procedures 

(AFTTP)(I) 3-2.68, Airfield Opening, May 2007.

FM 4-02.7, Marine Corps Reference Publication (MCRP) 4-11.1F, 

NTTP 4-02.7, AFTTP(I) 3-42.3, Multiservice Tactics, 

Techniques, and Procedures for Health Service Support in 

Nuclear, Biological, and Chemical Environment, 15 July 2009.

Headquarters First Air Force, Air Force North (1AF (AFNORTH)), 

DSCA Air Support Handbook, 1 January 2010.

Headquarters Marine Corps, Marine Corps Institute (MCI), 

Operational Risk Management (ORM) 1-0, February 2002.

Homeland Security Presidential Directive-5, Management of 

Domestic Incidents, 28 February 2003.

Homeland Security Presidential Directive-8, National Preparedness, 

17 December 2003.

Joint Publication (JP) 1, Doctrine for the Armed Forces of the United 

States, 20 March 2009.

JP 1-05, Religious Affairs in Joint Operations, 13 November 2009.
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References

JP 3-08, Interagency, Intergovernmental Organization, and 

Nongovernmental Organization Coordination during Joint

Operations Vol.1, 17 March 2006.

JP 3-27, Homeland Defense, 12 July 2007.

JP 3-28, Civil Support, 14 September 2007.

JP 3-33, Joint Task Force Headquarters, 16 February 2007.

JP 4-02, Health Service Support, 31 October 2006.

JP 4-06, Mortuary Affairs in Joint Operations, 5 June 2006.

JP 5-0, Joint Operation Planning, December 2006.

Joint Staff, Memorandum, ―Homeland Defense/Civil Support 

(HD/CS) Capabilities Based Assessment (CBA,‖ 9 February 

2009

Office of the Assistant Secretary of Defense, Memorandum, ―Prescripted Mission Assignments,‖ 11 September 2009.

National Guard Bureau, Domestic Operations Manual, 20 May 2008.

National Guard Regulation (NGR) 500-1/Air National Guard 

Instruction (ANGI) 10-8101, National Guard Domestic 

Operations, 13 June 08.

National Interagency Fire Center Military Use Handbook, July 

2006.

North American Aerospace Defense Command (NORAD) and 

United States Northern Command (USNORTHCOM) 

Instruction 14-3, ―Domestic Imagery,‖ 5 May 2009.

NORAD and USNORTHCOM, Surgeon’s Medical Capabilities 

Smartbook, 24 July 2009.

United States Coast Guard, Commandant Instruction 

(COMDTINST) 3025.1-M, DoD Manual for Civil Emergencies, 

June 1994.
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References

United States Coast Guard, COMDTINST 16000.22, Coast Guard 

Connectivity to the National Response Framework, 9 November 

2009.

United States Coast Guard, COMDTINST 15247.1D, Maritime Law 

Enforcement Manual.

United States Coast Guard, Commandant Publication P3120.17A, 

U.S. Coast Guard Incident Management Handbook, August 

2006.

United States Northern Command, Civil Support Concept of 

Employment, 20 August 2004.

United States Northern Command, Concept Plan (CONPLAN) 3501-

09, Defense Support of Civil Authorities, 2009. 

Wolfowitz, Paul, Deputy Secretary of Defense, Memorandum, 

―Reporting  ̳Immediate Response‘ Requests from Civil 

Authorities,‖ 25 April 2005.

Other

Brown, CPT William ―Randy,‖ ―Guess Who‘s Coming to Your 

Exercise?‖ Iowa Army National Guard, Lessons Learned 

Integration (L2I) Iowa, July 2009.

Center for Army Lessons Learned, Catastrophic Disaster Response 

Staff Officer’s Handbook: Techniques and Procedures, May 

2006.

Center for Army Lessons Learned, Mission Rehearsal Exercise 

Handbook: Tactics, Techniques, and Procedures (No. 03-34), 

December 2003.

Center for Law and Military Operations, Domestic Operational Law 

Handbook for Judge Advocate, 20 July 2009.

Center for Law and Military Operations, The Judge Advocate 

General‘s Legal Center and School, Forged in the Fire: Lessons 

Learned during Military Operations (1994-2008), 1 September 

2008.

Consequence Management Version 1.0, August 2008.
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References

City and County of San Francisco, ―Earthquake Response Plan 

Enhancement,‖ September 2006.

Department of Commerce, National Oceanic and Atmospheric 

Administration, National Hurricane Operations Plan (FCMP12-2010), May 2010.

Department of Defense, Office of the Inspector General, ―DoD Civil 

Support during the 2007 and 2008 California Wildland Fires‖ 

(Project No. D2008-D000CG-0246.000), 1 January 2009.

Department of Homeland Security (DHS), DHS ISR Playbook: 

Natural Disasters, Version 4.2, 18 July 2008.

Department of Military and Veteran Affairs, Florida National Guard, 

―LNO Handbook,‖ 5 March 2007.

Department of Military and Veteran Affairs, Hawaii National Guard, 

―LNO Handbook and Tools,‖ 5 March 2007.

Department of the Army, Hurricane Safety: A Preparedness Guide 

for Fort Stewart and Hunter Army Airfield, 15 May 2006.

Department of the Navy, Headquarters United States Marine Corps, 

Memorandum, ―DOTIG Draft Report: DoD Civil Support 

Wildland Fires,‖ 27 July 2009.

Federal Emergency Management Agency, Comprehensive 

Preparedness Guide 101, March 2009.

Federal Emergency Management Agency, ―Emergency Support 

Function #9 ‒ Search and Rescue Annex,‖ January 2008.

Federal Emergency Management Agency, Incident Management 

Handbook (FEMA B -761), March 2009.

Federal Emergency Management Agency, Joint Field Office (JFO) 

Aviation Branch Operations Manual, Interagency Coordination 

for Federal Aviation Support to Disaster Operations

(Coordinated Draft Version 10.2), 31 January 2009.

Federal Emergency Management Agency, ―Fact Sheet: Landslides 

and Mudflows,‖ 2009.
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UNCLASSIFIED

References

Federal Emergency Management Agency, Emergency Management 

Institute, State Disaster Management (Course #IS 208), 2008.

First U.S. Army, ―Leader‘s Risk Management Guide for Hurricane 

Operations, JTF Katrina,‖ 30 August 2005.

Florida National Guard, ―DSCA Plan,‖ 1 April 2008.

Gonzales, Robert F., ―Legal Aspects of Defense Support of Civil 

Authorities (DSCA) [Brief],‖ 7 June 2010.

Graham, Ronnie, ―Logistics in DSCA Operations.‖

Headquarters, Continental United States NORAD Region (CONR)-

Air Forces Northern (AFNORTH), ―Air Force Auxiliary Mission 

Brief for 2008 AF Emergency Preparedness Liaison Officer 

(EPLO) Conference‖ [Brief], 2008.

Homeland Security Institute, Annual Report to Congress, 2009.

Inspector General, Department of Defense, Memorandum, ―DoD 

Civil Support During the 2007 and 2008 California Wildland 

Fires‖ (Report No.D-2010-015), 13 November 2009.

International Maritime Organization, International Aeronautical and 

Maritime Search and Rescue Manual, 1999.

Marine Corps Center for Lessons Learned, ―Defense Support to Civil 

Authorities (DSCA): Lessons and Observations from the 

October 2007 Southern California Wildland Fires,‖ 25 June 

2008. 

Marine Emergency Preparedness Liaison Officer Team, FEMA 

Region IX. ―Defense Support to Civil Authority: DoD Homeland 

Defense and Homeland Security Policy Overview [Brief].‖ 

National Guard Bureau, ―Liaison Officer 101‖ [Training], November 

2009.

National Guard Bureau, Joint Task Force – State (JTF-State) Joint 

Mission Essential Task List (JMETL) (Version 4.0), 19 

September 2005.
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References

National Guard Bureau, California National Guard, ―Civil Support 

Task List‖ (Coordinating Draft), 5 March 2010.

National Search and Rescue Committee, ―Catastrophic Incident 

Search and Rescue Addendum to the National Search and 

Rescue Supplement to the International Aeronautical and 

Maritime Search and Rescue Manual‖ (Version 2.0), November 

2009. 

―National Search and Rescue Plan of the United States,‖ 2007.

Navy Leader’s Guide for Managing Personnel in Distress.

New Jersey National Guard, ―All-Hazards CONPLAN,‖ 2008.

New Jersey National Guard, ―New Jersey Emergency Response Joint 

Operations Battle Book,‖ 2008.

New Jersey National Guard, ―Pre/Post-Landfall Hurricane Planning 

Response Model,‖ 2005.

New Jersey National Guard, ―Nuclear Detonation CBRNE 

CONPLAN,‖ 14 August 2008.

State of New York, Division of Military Affairs, JFHQ-NY 

CONPLAN 08-01: Domestic Operations, 1 October 2008.

Tennessee Emergency Management Agency (TEMA) TN100-24, 

―Catastrophic Event Annex,‖ 1 October 2008.

United States Army Public Health Command, ―Earthquake Relief 

Response – Haiti Preventive Medicine Measures‖ [PowerPoint], 

2009. 

United States Army Training Support Centers, GTA 05 -08-002, 

Environmental-Related Risk Assessment, March 2008.

United States Department of Commerce, National Hurricane 

Operations Plan (FCM-P12-2010), May 2010.

United States Government Accountability Office, DoD Efforts to 

Identify and Provide Capabilities to Support Civil Authorities 

during Disasters (351317), December 2009.
DSCA Handbook

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UNCLASSIFIED

References

United States Joint Forces Command, Office of the Command 

Surgeon, Joint Task Force Senior Medical Leader Operations 

Guide, 6 March 2006.

United States Marine Corps, Leaders Guide for Managing Marines 

in Distress.

United States Northern Command, Base Support Installation (BSI) 

Handbook (Version 2.1). 

United States Northern Command (J47), General Population 

Evacuation by Air Planning Guide, June 2008.

―U.S. National SAR Supplement.‖

Wombell, James A. Army Support during the Hurricane Katrina 

Disaster, 2009.
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UNCLASSIFIED

Useful Websites

ANNEX L: USEFUL WEBSITES

The following websites provide a variety of information and 

resources related to Defense Support of Civil Authorities and 

associated Non-Governmental Agencies (NGOs). Additional 

websites for topic-specific information may be found at the end of 

some chapters.

American Red Cross

http://www.redcross.org/

CALL (Center for Army Lessons Learned)

http://usacac.army.mil/cac2/call/index.asp. 

The CALL website contains unclassified information to assist in 

domestic emergencies.

CDC (Centers for Disease Control)

http://www.emergency.cdc.gov/disasters/

The CDC website has links to information on natural disasters and 

severe weather.

Department of Defense (DoD)

www.defense.gov

The official website of DoD serves as a starting point for finding 

U.S. military information online. It contains links to Office of the 

Secretary of Defense, Joint Staff and existing nested policies and 

authorities.

Department of Homeland Security (DHS)

www.llis.gov

This website contains lessons learned information sharing for all 

hazard events. A login and password is required.

EMI (Emergency Management Institute) Training

http://training.fema.gov/
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UNCLASSIFIED

Useful Websites

The EMI website provides information on and links to courses that 

have been developed to enhance U.S. emergency management 

practices.

Federal Emergency Management Agency (FEMA)

http://www.fema.gov/about/index.shtm

This page of the FEMA website provides links to FEMA‘s statutory 

authority, including the Stafford Act, and strategic plans.

FEMA Acronyms, Abbreviations, and Terms

http://www.fema.gov/plan/prepare/faat.shtm

This site is the complete FEMA P-524 Acronyms, Abbreviations, and 

Terms (FAAT). The FAAT list is a handy reference for over 6,200 

acronyms, abbreviations, and terms used within the federal 

government, emergency management, and first response 

communities. Obsolete items can be found at the end of this 

document and are included because they may still appear in 

publications and correspondence.

HSPD-5

http://www.dhs.gov/xabout/laws/gc_1214592333605.shtm

This site provides full text of Homeland Security Presidential 

Directive 5 (HSPD 5).

Incident Command System (ICS) Resource Center

http://training.fema.gov/EMIWeb/IS/ICSResource/index.htm

The ICS Resource Center gives links to reference documents, 

training-related materials and independent study courses, and 

printable versions of relevant materials, including ICS forms.

ICS Forms

http://training.fema.gov/EMIWeb/IS/ICSResource/Forms.htm

This page of the ICS Resource Center is the source for printable 

versions of ICS forms. Links offer both PDF and Word versions of 

most forms.
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Useful Websites

Maps and Imagery Sites

Geodata.gov (for maps)

http://gos2.geodata.gov

Google Earth for .mil (U.S. Army Corps of Engineers site)

https://gearportal.usace.army.mil/dotmil/Default.aspx

The National Map

http://nationalmap.gov/

U.S. Geological Survey (USGS) Homepage

http://www.usgs.gov/

USGS Aerial Photographs and Satellite Images 

http://www.usgs.gov/pubprod/aerial.html

USGS Emergency Operations Page

http://hdds.usgs.gov/EO/

USGS Maps, Imagery, and Publications

http://www.usgs.gov/pubprod/maps.html

National Guard Bureau Guard Knowledge Online 

Dashboard for Domestic Operations

https://gkoportal2.ngb.army.mil/opsdashboard/Pages/default.aspx

National Incident Management System (NIMS) Resource Center

http://www.fema.gov/emergency/nims/

The NIMS Resource Center provides clarification on NIMS and 

updates to specific elements of the NIMS document. It also contains

links to supporting documents, resources, educational materials, and 

other useful tools and information. 
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Useful Websites

National Response Framework (NRF) Resource Center

http://www.fema.gov/emergency/nrf/

The NRF Resource Center is an online repository of supporting 

documents, resources, educational materials, and other tools needed 

for response partners to understand and execute their roles under the 

Framework.

Salvation Army

http://www.salvationarmyusa.org/usn/www_usn_2.nsf

United States Coast Guard (USCG) Incident Management 

Handbook

http://homeport.uscg.mil/ics

The USCG has published an all-hazards/all-risk incident 

management handbook to assist in the practical application of NIMS 

ICS principles. The Coast Guard Incident Management Handbook

and other Coast Guard incident management support information can 

be found at this website.
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ANNEX M: GLOSSARY/TERMS

Area Command 

(Unified Area 

Command)

An organization established to oversee the 

management of (1) multiple incidents that are each 

being handled by an Incident Command System

organization, or (2) large or multiple incidents to 

which several Incident Management Teams have 

been assigned. Area Command has the responsibility 

to set overall strategy and priorities, allocate critical 

resources according to priorities, ensure that 

incidents are properly managed, and ensure that 

objectives are met and strategies followed. Area 

Command becomes Unified Area Command when 

incidents are multijurisdictional. Area Command 

may be established at an Emergency Operations 

Center facility or at some location other than an 

Incident Command Post.

Base Support 

Installation 

(BSI)

Normally a Department of Defense installation with 

an airfield and suitable support facilities. The BSI is 

the domestic equivalent to a theater base in other 

areas of responsibility. It may be the Aerial Port of 

Embarkation and may become the Joint Reception, 

Staging, Onward movement, and Integration 

(JRSOI) facility for joint forces. In addition to 

JRSOI, the BSI may also become a training facility 

and principal supporting base for federal relief 

efforts.

Branch The organizational level in the Incident Command 

System having functional or geographic 

responsibility for major parts of the Operations or 

Logistics functions. The Branch level is 

organizationally between Section and 

Division/Group in the Operations Section, and 

between Section and Units in the Logistics Section. 

Camp A geographical site, within the general incident area, 

separate from the Incident Base, equipped and 

staffed to provide sleeping, food, water, and sanitary 

services to incident personnel.
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Chief The Incident Command System title for individuals 

responsible for functional Sections.

Command Staff The Incident Command System command staff

consists of the Public Information Officer, Safety 

Officer, and Liaison Officer. They report directly to 

the Incident Commander. They may have an 

Assistant or Assistants, as needed.

Director The Incident Command System title for individuals 

responsible for supervision of a Branch.

Division Divisions are used to divide an incident into 

geographical areas of operation. A Division is 

located within the Incident Command System

organization between the Branch and the Task 

Force/Strike Team. 

Emergency 

Operations 

Center (EOC)

The physical location at which coordination of 

information and resources to support domestic 

incident management activities normally takes place. 

It may be a temporary facility or located in a more 

central or permanently established facility. EOCs 

may be organized by major functional disciplines 

(e.g., fire, law enforcement) by jurisdiction (e.g., 

federal, state, regional, county, city, tribal), or some 

combination thereof.

Emergency 

Operations 

Plan (EOP)

The plan that each jurisdiction has and maintains for 

responding to appropriate hazards.

General Staff A group of incident management personnel 

organized according to function and reporting to the 

Incident Commander. The General Staff normally 

consists of the Operations Section Chief, Planning 

Section Chief, Logistics Section Chief, and 

Finance/Administration Section Chief.

Group Established to divide the incident into functional 

areas of operation. Groups are composed of 

resources assembled to perform a special function 

not necessarily within a single geographic division. 

Groups are located between Branches (when 

activated) and Resources in the Operations Section. 
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Incident Action 

Plan (IAP)

An oral or written plan containing general objectives 

reflecting the overall strategy for managing an 

incident. It may include the identification of 

operational resources and assignments. It may also 

include attachments that provide direction and 

important information for management of the 

incident during one or more operational periods.

Incident 

Commander 

(IC)

The individual responsible for all incident activities, 

including the development of strategies and tactics 

and the ordering and the release of resources. The IC 

has overall authority and responsibility for 

conducting incident operations and is responsible for 

the management of all incident operations at the 

incident site.

Incident 

Command Post 

(ICP)

The field location at which the primary tacticallevel, on-scene incident command functions are 

performed. The ICP may be collocated with the 

incident base or other incident facilities and is 

normally identified by a green rotating or flashing 

light.

Incident 

Command 

System (ICS)

A standardized, on-scene emergency management 

construct specifically designed to provide for the 

adoption of an integrated organizational structure 

that reflects the complexity and demands of single or 

multiple incidents, without being hindered by 

jurisdictional boundaries. ICS is the combination of 

facilities, equipment, personnel, procedures, and 

communications operating within a common 

organizational structure, designed to aid in the 

management of resources during incidents. It is used 

for all kinds of emergencies and is applicable to 

small as well as large and complex incidents. ICS is 

used by various jurisdictions and functional 

agencies, both public and private, to organize fieldlevel incident management operations.

Incident 

Management 

Team (IMT)

The Incident Commander and appropriate 

Command and General Staff personnel assigned to 

an incident. 
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Incident 

Support Base

(ISB)

An extension of the National Distribution System 

which includes Distribution Centers as well as sites 

positioned to enable an agile, flexible and adaptable 

resource management and provisioning capability.

This is vital to ensure that resources are in or near 

the area of disaster impact for immediate distribution 

upon direction of the appropriate state and federal 

officials. These resources remain national assets until 

directed forward to Points of Distribution where the 

state takes control.

Incident Types Categories of incidents based on complexity. Type 1

incidents are the most complex; Type 5, the least.

Joint 

Information 

Center (JIC)

A facility established to coordinate all incidentrelated public information activities. It is the central 

point of contact for all news media at the scene of 

the incident. Public information officials from all 

participating agencies should collocate at the JIC.

Kind of 

Resource

Describes what the resource is (e.g., medic, 

firefighter, Planning Section Chief, helicopters, 

ambulances, combustible gas indicators, bulldozers).

Leader The Incident Command System title for an 

individual responsible for a Task Force, Strike Team, 

or functional unit. 

Mission 

Assignment 

(MA)

The vehicle used by the Department of Homeland 

Security/Emergency Preparedness and Response/

Federal Emergency Management Agency to support 

federal operations in a Stafford Act major disaster or 

emergency declaration that orders immediate, shortterm emergency response assistance when an 

applicable state or local government is overwhelmed 

by the event and lacks the capability to perform, or 

contract for, the necessary work.

National 

Incident 

Management 

System (NIMS)

A system mandated by Homeland Security 

Presidential Directive-5 (HSPD-5) that provides a 

consistent nationwide approach for federal, state, 

local, and tribal governments; the private sector; and 

non-governmental organizations to work effectively 

and efficiently together to prepare for, respond to, 
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and recover from domestic incidents, regardless of 

cause, size, or complexity. To provide for 

interoperability and compatibility among federal,

state, local, and tribal capabilities, the NIMS 

includes a core set of concepts, principles, and 

terminology. HSPD-5 identifies these as the Incident 

Command System; multiagency coordination 

systems; training; identification and management of 

resources (including systems for classifying types of 

resources); qualification and certification; and the 

collection, tracking, and reporting of incident 

information and incident resources. 

Officer The Incident Command System title for the 

personnel responsible for the Command Staff 

positions of Safety, Liaison, and Public Information. 

Public 

Information 

Officer (PIO)

A member of the Command Staff responsible for 

interfacing with the public and media or with other 

agencies with incident-related information 

requirements.

Request for 

Assistance 

(RFA)

A request based on mission requirements and 

expressed in terms of desired outcome, formally 

asking the Department of Defense to provide 

assistance to a local, state, tribal, or other federal 

agency. 

Safety Officer A member of the Incident Command System 

Command Staff responsible for monitoring and 

assessing safety hazards or unsafe situations and for 

developing measures for ensuring personnel safety. 

The Safety Officer may have Assistants. 

Section The organizational level having responsibility for a 

major functional area of incident management, e.g., 

Operations, Planning, Logistics, Finance/

Administration, and Intelligence (if established). The 

section is organizationally situated between the 

Branch and the Incident Command. 

Single Resource An individual, a piece of equipment and its 

personnel complement, or a crew or team of 

individuals with an identified work supervisor that 

can be used on an incident. 
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Staging Area Location established where resources can be placed 

while awaiting a tactical assignment. The Operations 

Section manages Staging Areas.

State Active 

Duty (SAD)

National Guard personnel and equipment remain 

accessible to the Governor for state or local 

emergencies, unless otherwise provided by law. 

States are free to employ their National Guard forces 

under state control for state purposes and at state 

expense as provided for under state law. National 

Guard members performing this type of duty are said 

to be in ―State Active Duty status,‖ meaning that 

command and control rests solely with the Governor 

as head of the state government and that state 

government bears all of the associated costs. 

Execution of SAD missions is typically 

accomplished by delegation of authority from the 

Governor to the Adjutant General. In SAD status, 

there is no operational connection to the federal 

government. (See also Title 32.)

Strike Team A specified combination of the same kind and type 

of resources with common communications and a 

Leader. 

Supervisor The Incident Command System title for individuals 

responsible for a Division or Group. 

Task Force A combination of single resources assembled for a 

particular tactical need with common 

communications and a leader. 

Team See Single Resource. 

Technical 

Specialists

Personnel with special skills that can be used 

anywhere within the Incident Command System 

organization. 

The Adjutant 

General (TAG)

An Air Force or Army general officer who serves as 

the chief of staff of that state‘s National Guard and is 

the principal military advisor to the governor. The 

TAG recommends National Guard response options 

to the governor and designates the National Guard 

commander for any response. The TAG has a joint 

staff including full-time National Guard officers and 
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some state civilian employees. During any 

emergency, the TAG coordinates with other TAGs 

for emergency assistance and with the National 

Guard Bureau.

Because each state‘s National Guard varies in 

composition and size, there is no standard response 

organization for all 54 Guard entities. However, for 

most emergencies the TAG establishes a joint task 

force headquarters (often in contingency plans) that 

has operational control of all National Guard forces 

in that state as well as any National Guard forces 

provided by other states under agreement.

Title 10 Forces Regular Army, Navy, Marine and Air Force 

personnel and units; mobilized Army, Navy, Air 

Force and Marine Reserve forces and personnel, and 

any National Guard forces and personnel mobilized 

for federal service. The President of the United 

States is the Commander-in-Chief.

Title 32 Forces The National Guard typically performs training for 

its federal wartime missions in Title 32 duty status. 

Occasionally the National Guard can perform 

operational missions in Title 32 status as allowable 

under Title 32, 502(f). Although the activities of 

National Guard units in Title 32 duty status are 

controlled by the individual states, they are funded 

with federal monies. The ability to operate in the 

service of the federal government while under state 

control is unique to the National Guard. In all cases 

the governor maintains command and control of 

National Guard forces in Title 32 duty status. 

National Guard members performing duty under the 

authority of Title 32 are in a State Duty status and 

are said to be serving in ―Title 32 Duty status.‖

Type of 

Resource

A classification of resources in the Incident 

Command System that references capability. Type 1 

is generally considered to be more capable than 

Types 2, 3, or 4, respectively, because of size, 

power, capacity, or, in the case of Incident 

Management Teams, experience and qualifications.
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Unified Area 

Command

A Unified Area Command is established when 

incidents under an Area Command are 

multijurisdictional. (See Area Command and Unified 

Command.) 

Unified 

Command

An application of Incident Command System used 

when there is more than one agency with incident 

jurisdiction or when incidents cross political 

jurisdictions. Agencies work together through the 

designated members of the Unified Command, often 

the senior person from agencies and/or disciplines 

participating in the Unified Command, to establish a 

common set of objectives and strategies and a single 

Incident Action Plan.

Unit Under Incident Command System, the 

organizational element having functional 

responsibility for a specific incident Planning, 

Logistics, or Finance/Administration activity. 

Unity of 

Command

The Incident Command System concept by which 

each person within an organization reports to one 

and only one designated person. The purpose of 

unity of command is to ensure unity of effort under 

one responsible commander for every objective 
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Acronyms

ANNEX N: ABBREVIATIONS AND ACRONYMS

A2C2S Army Airspace Command and Control 

System

AAFES Army and Air Force Exchange Service

AAMC Air Ambulance Medical Company

AAR After Action Report

AC2 Airspace Command and Control

ACA Airspace Coordinating Authority

ACE Aviation Combat Element

ACCE Air Component Coordination Element

ACCP Airspace Coordination and Control Plan

ACOC Area Communications Operations Center

ADCON Administrative Control

ADPAAS Army Disaster Personnel Accountability and 

Assessment System 

ADVON Advanced Echelon

AE Aeromedical Evacuation

AECM Aeromedical Evacuation Crew Member

AEF Air Expeditionary Force

AEG Aero-Expeditionary Group

AELT Aeromedical Evacuation Liaison Team

AFAUX Air Force Auxiliary

AFB Air Force Base

AFI Air Force Instruction

AFNORTH Air Forces Northern

AFNSEP Air Force Northern National Security 

Emergency Preparedness

AFFOR Air Force Forces Command

AFPAAS Air Force Personnel Accountability and 

Assessment System 

AFRC Air Force Reserve Command

AFRCC Air Force Rescue Coordination Center

AFSFC Air Force Security Forces Center

AFTTP Air Force Tactics, Techniques, and 

Procedures

AGC Army Geospatial Center
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Acronyms

AHB Assault Helicopter Battalion

AKO Army Knowledge Online

ALCT Airlift Control Team

ALOC Administrative and Logistics Operations 

Center

ALSA Air Land Sea Application

AMC Air Mobility Command

AMD Air Mobility Division

ANG Air National Guard

ANGI Air National Guard Instruction

A/N/S Air Force Staff/Navy Staff/Army, Marine 

Corps Staff

APOD Aerial Port of Debarkation

APOE Aerial Port of Embarkation

AO Area of Operation

AO Arming Order

AOC Air and Space Operations Center

AOCC Aviation Operations Coordination Center

AOR Area of Responsibility

AR Army Regulation

ARC American Red Cross

ARCHER Airborne Real-Time Cueing Hyper Spectral 

Enhanced Reconnaissance

AREP Area Representative

ARF Action Request Form

ARG Amphibious Ready Group

ARNG Army National Guard

ARNORTH United States Army North

ARS Aerial Reconnaissance Squadron

ASB Aviation Sustainment Battalion

HD/ASA) Assistant Secretary of Defense-Homeland 

Defense and Americas‘ Security Affairs

ASL Authorized Stockage List

ASMC Area Support Medical Company

ASV Armored Security Vehicle 

AT Anti-Terrorism

ATC Air Traffic Control
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ATM Automated Teller Machine

ATO Air Tasking Order

ATS Air Traffic Services

AWACS Airborne Warning and Control System

BCOTM Battle Command on the Move

BCT Brigade Combat Team

BEEF Base Engineer Emergency Force

BNML Battalion Military Liaison

BSI Base Support Installation

BX Base Exchange

C2 Command and Control

CAB Combat Aviation Brigade

CAB-E Combat Aviation Brigade—Expeditionary

CAC Command Aviation Company

CAC Common Access Card

CALL Center for Army Lessons Learned

CAOC Combined Air Operations Center

CAP Civil Air Patrol

CASEVAC Casualty Evacuation

CBIRF Chemical/Biological Incident Response 

Force

CBRN Chemical, Biological, Radiological, and 

Nuclear

CBRNE Chemical, Biological, Radiological, 

Nuclear, or high-yield Explosives

CCATT Critical Care Air Transport Teams

CCIR Commander‘s Critical Information 

Requirements

CCMRF CBRNE Consequence Management 

Response Force

CDC Centers for Disease Control

CDR Commander

CE Commander‘s Estimate

CEB Combat Engineer Battalion

CERFP CBRNE Enhanced Response Force Package
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CFACC Combined Force Air Component 

Commander

CFR Code of Federal Regulations

CIKR Critical Infrastructure and Key Resources

CISM Critical Incident Stress Management

CJCS Chairman of the Joint Chiefs of Staff

CJCSI Chairman of the Joint Chiefs of Staff

Instruction

CJCSM Chairman of the Joint Chiefs of Staff 

Manual

CLEA Civil Law Enforcement Authorities

COA Course of Action

COAC-A Combined Air and Space Operations CenterAir

COI Community of Interest

COMDTINST Commandant Instruction (USCG)

COMNAVMAR Commander, Naval Forces Marianas

COMPACFLT Commander, U.S. Pacific Fleet

COMSEC Communications Security

CONOPS Concept of Operations

CONPLAN Concept Plan

CONUS Continental United States

COP Common Operational Picture

COSC Combat and Operational Stress Control

COTS Commercial Off-the-Shelf

CPR Cardiopulmonary Resuscitation

CRE Contingency Response Element

CRG Contingency Response Group

CRT Contingency Response Team

CRM Composite Risk Management

CS Civil Support

CS Combat Support

CSC Combat Stress Control

CSH Combat Support Hospital

CST Civil Support Team
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Acronyms

DA Department of the Army

DA PAM Department of the Army Pamphlet

DASC Direct Air Support Center

DASF Disaster Aeromedical Staging Facility

DAT Dental Augmentation Team

DCE Defense Coordinating Element

DCO Defense Coordinating Officer

DD, AW Deputy Director, Air Warfare

DDASS DoD Defense Support to Civil Authorities 

Automated Support System 

DDOC Deployment Distribution Operations Center

DEPORD Deployment Order

DHS Department of Homeland Security

DINFOS Defense Information School

DIRLAUTH Direct Liaison Authorized

DIRMOBFOR Director Mobility Forces

DLA Defense Logistics Agency

DMAT Disaster Medical Assistance Team

DMORT Disaster Mortuary Operational Response 

Team

DNBI Disease and Non-Battle Injury

DoD Department of Defense

DoDD Department of Defense Directive

DoDI Department of Defense Instruction

DOI Department of Interior

DOJ Department of Justice

DOMS Director of Military Support

DOS Days of Supply

DOT&E Director Operational Test and Evaluation

DPMU Disaster Portable Morgue Unit

DSCA Defense Support of Civil Authorities

DSN Defense Switch Network

DTG Date-Time Group

DV Distinguished Visitor

EAB Echelons Above Brigade

ECS Expeditionary Combat Support
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Acronyms

EEFI Essential Elements of Friendly Information

EF Enhanced Fujita

EMAC Emergency Management Assistance 

Compact 

EMEDS Expeditionary Medical System

EMI Emergency Management Institute

EMS Emergency Medical Services

EOC Emergency Operations Center

EOD Explosive Ordnance Disposal

EOP Emergency Operation Plans

EPLO Emergency Preparedness Liaison Officer

ESF Emergency Support Function

EXORD Execution Order

F&ES Fire and Emergency Support

FAA Federal Aviation Administration

FACL Facilities Unit Leader

FACT Family Assistance Center Team

FARP Forward Arming and Refueling Point

FATO Final Approach and Take-Off

FBI Federal Bureau of Investigation

FBO Faith-Based Organization

FCC Federal Communications Commission

FCC Federal Coordinating Center

FCO Federal Coordinating Officer

FDPMU Forward Deployed Preventive Medicine 

Unit

FEMA Federal Emergency Management Agency

FFIR Friendly Force Information Requirement

FFP Fresh Frozen Plasma

FHP Force Health Protection

FM Field Manual

FMI Field Manual Interim

FOIA Freedom of Information Act

FPCON Force Protection Condition

FRAGO Fragmentary Order

FRP Fleet Response Plan
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Acronyms

FSMT Forward Support Medical Evacuation Team

FSRT Fatality Search and Recovery Team

FST Fleet Surgical Team (Navy)

FTCA Federal Tort Claims Act

GACC Geographic Area Coordination Center

GCE Ground Combat Element

GDSS Global Deployment Support System

GETS Government Emergency 

Telecommunications Service

GPS Global Positioning System

GSA General Services Administration

GSAB General Support Aviation Battalion

HAZMAT Hazardous Material

HCP Health Care Provider

HD Homeland Defense

HEMTT Heavy Expanded Mobility Tactical Truck

HET Heavy Equipment Transporter

HHS (Department of) Health and Human Services

HLZ Helicopter Landing Zone

HMMWV High Mobility Multipurpose Wheeled 

Vehicle

HQ Headquarters

HS Homeland Security

HSIN Homeland Security Information Network

HSPD Homeland Security Presidential Directive

HSS Health Service Support

IA Incident Action

IAA Incident Awareness and Assessment

IAP Incident Action Plan

IAW In Accordance With

IC Incident Commander

ICP Incident Command Post

ICS Incident Command System

ICU Intensive Care Unit
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Acronyms

IFR Instrument Flight Rules

IMAT Incident Management Assistance Team

IMT Incident Management Team

IMT-S Incident Management Support Team

IPB Intelligence Preparation of the Battlefield

IR Incident Response

IRA Immediate Response Authority

ISB Incident Support Base

ISR Intelligence, Surveillance, and 

Reconnaissance 

IST Incident Support Team

JA Judge Advocate

JAG Judge Advocate General

JCCC Joint Communications Control Center

JCCSE Joint CONUS Communications Support 

Environment 

JCS Joint Chiefs of Staff

JDOMS Joint Director of Military Support

JET Joint Enabling Team

JFACC Joint Force Air Component Command

JFC Joint Force Commander

JFCC Joint force Component Command

JFCOM Joint Force Command

JFHQ Joint Force Headquarters

JFLCC Joint Force Land Component Command

JFMCC Joint Force Maritime Component Command

JFO Joint Field Office

JIC Joint Information Center

JIEE Joint Information Exchange Environment 

JIPOE Joint Intelligence Preparation of the 

Operational Environment

JISCC Joint Incident Site Communications 

Capability

JMAO Joint Mortuary Affairs Officer

JOA Joint Operations Area

JOC Joint Operations Center
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Acronyms

JOPES Joint Operation Planning and Execution 

System

JOPP Joint Operation Planning Process

JP Joint Publication

JPERSTAT Joint Personnel Status and Casualty Report

JRMP Joint Regional Medical Planner

JRMPO Joint Regional Medical Plans and 

Operations

JRSOI Joint Reception, Staging, Onward movement 

and Integration

JSLIST Joint Services Lightweight Integrated Suit 

Technology

JT&E Joint Test and Evaluation

JTF Joint Task Force

JTF-HD Joint Task Force—Homeland Defense

km kilometer

kw kilowatt

LAN Local Area Network

LCE Logistics Combat Element

LCES Lookouts, Communications, Escape routes 

and Safety zones

LEA Law Enforcement Agency

LEDET Law Enforcement Detachment (USCG)

LFA Large Frame Aircraft

LHA Amphibious Assault Ship (General Purpose)

LHD Amphibious Assault Ship (Multipurpose)

LNO Liaison Officer

LOD Line of Duty

LOGSTAT Logistics Status

LSC Logistics Section Chief

LUH Light Utility Helicopter

LZ Landing Zone

MA Master-at-Arms

MA Mission Assignment
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Acronyms

MAFFS Modular Airborne Firefighting System

MAGTF Marine Air Ground Task Force

MASF Mobile Aeromedical Staging Facility

MASS Modular Aerial Spray System

MCAD Military Crew Advisor

MCDP Marine Corps Doctrinal Publication

MCI Marine Corps Institute

MCRP Marine Corps Reference Publication

MCWP Marine Corps Warfighting Publication

MDA Maritime Domain Awareness

ME/C Medical Examiner/Coroner

MEDEVAC Medical Evacuation

MEDLOG Medical Logistics

MFST Mobile Field Surgical Team

MGRS Military Grid Reference Systems

MHE Materials Handling Equipment

MHz Megahertz

MLE Military Law Enforcement

MILSTRIP Military Standard Requisitioning and Issue 

Procedures

MOA Memorandum of Agreement

MOB Main Operating Base

MOG Maximum On Ground

MOPP Mission-Oriented Protective Posture

MOU Memorandum of Understanding

MP Military Police

MPA Maritime Patrol Aircraft

mph miles per hour

MROE Medical Rules of Engagement

MSC Major Subordinate Command

MSCLEA Military Support to civilian Law 

Enforcement Agencies

MSF Mobile Security Force

MST Medical Strike Team

MTF Medical Treatment Facility

MWD Military Working Dog

MWR Morale, Welfare, and Recreation
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NAF Non-Appropriated funds

NAS National Airspace System

NASA National Aeronautics and Space 

Administration

NASAR National Association for Search and Rescue

NBC Nuclear, Biological, Chemical

NC NORTHCOM 

NCI Northern Command Instruction

NCA National Command Authorities

NCF Naval Construction Force

NCO Non-Commissioned Officer

NCS National Communications System

NDAA National Defense Authorization Act 

NDMS National Disaster Medical System 

NEA National Emergency Act

NEO Non-combatant Evacuation Operations

NFAAS Navy Family Accountability and 

Assessment System 

NFES National Fire Equipment System

NG National Guard

NGB National Guard Bureau

NGB-OC National Guard Bureau Office of the 

Chaplain

NGO Non-Governmental Organization

NGR National Guard Regulation

NICC National Interagency Coordination Center

NIFC National Interagency Fire Center

NIFOG National Interoperability Field Operations 

Guide

NIICD National Interagency Incident 

Communications Division

NIMS National Incident Management System

NIOSH National Institute for Occupational Safety 

and Health

NIPRNet Non-classified Internet Protocol Router 

Network

NMCC National Military Command Center
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Tactical Level Commander and Staff Toolkit

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Acronyms

NOAA National Oceanic and Atmospheric 

Administration

NOC National Operations Center

NORAD North American Aerospace Defense 

Command

NOTAM Notices to Airmen

NPS National Park Service

NRCC National Response Coordination Center

NRF National Response Framework

NS/EP National Security and Emergency 

Preparedness

NSP National Search and Rescue Plan

NSS National Search and Rescue Supplement

NSSE National Special Security Event

NTTP Navy Tactics, Techniques, and Procedures

NVOAD National Voluntary Organizations Active in 

Disaster

NVRT National Veterinary Response Team

NWP Naval Warfare Publication

NWS National Weather Service

OASD (HD/ASA) Office of the Assistant Secretary of DefenseHomeland Defense and Americas‘ Security 

Affairs

OCONUS Outside the Continental United States

OEM Office of Emergency Management 

OIC Officer in Charge

OPCON Operational Control

OPLAN Operation Plan

OPNAVINST Office of the Chief of Naval Operations 

Instruction

OPORD Operation Order

OPSEC Operations Security

OPTEMPO Operating Tempo

OR Operating Room

ORM Operational Risk Management

OSC On-Scene Commander
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Acronyms

OSD Office of the Secretary of Defense

OSHA Occupational Safety and Health 

Administration

PA Primary Agency

PA Public Affairs

PAD Public Affairs Detachment

PAM Prevention and Aerospace Medicine 

PAO Public Affairs Officer

PAR Population at Risk

PCA Posse Comitatus Act

PDA Preliminary Damage Assessment

PDHRA Post-Deployment Health Reassessment 

PETS Pets Evacuation and Transportation 

Standards

PIO Public Information Officer

PIR Priority Information Requirements

P.L. Public Law

PLS Palletized Load System

POC Point of Contact

POL Petroleum, Oil and Lubricants

POMSO Plans, Operations, and Military Support 

Officer

PPE Personal Protective Equipment

PSMA Pre-Scripted Mission Assignment

PSTN Public Switched Telephone Network

PUM Proper Use Memorandum

PX Public Exchange

PZ Pickup Zone

QRT Quick Reaction Test

RAMCC Regional Air Movement Coordination 

Center

RCC Rescue Coordination Center

REPLO Regional Emergency Preparedness Liaison 

Officer
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Acronyms

RFA Request for Assistance

RFF Request for Forces

RFI Request for Information

RIBS Readiness in Base Support

ROE Rules of Engagement

RRCC Regional Response Coordination Center

RS Religious Support

RST Religious Support Team

RUF Rules for Use of Force

S&S Security and Support

SAD State Active Duty

SAR Search and Rescue

SBU Sensitive but Unclassified

SCO State Coordinating Officer

SCRAG Senior Civilian Representative of the 

Attorney General

SDIS Satellite Digital Imaging System

SecDef Secretary of Defense

SECNAV Secretary of the Navy

SECNAVINST SECNAV Instruction

SEMA State Emergency Management Agency

SEOC State Emergency Operations Center

SEPLO State Emergency Preparedness Liaison 

Officer

SFLEO Senior Federal Law Enforcement Officer

SIMLM Single Integrated Medical Logistics 

Manager

SIPRNet Secret Internet Protocol Router Network

SITREP Situation Report

SJA Staff Judge Advocate

SMS Strategic Mobility System

SPEARR Small Portable Expeditionary Aeromedical 

Rapid Response

SOCOM Special Operations Command

SOP Standard Operating Procedures

SP Shore Patrol
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Acronyms

SPINS Special Instructions

SROE Standing Rules of Engagement

SRR Search and Rescue Region

SRUF Standing Rules for the Use of Force

SSC Standard Systems Center

STML Strike Team Leader/Military

SUV Sport Utility Vehicle

SWEATMS Sewer, Water, Energy, Access/Admin, 

Transportation, Medical, and Safety

TAC Theater Aviation Company

TACC Tanker Air Coordination Center

TAC CP Tactical Command Post

TACON Tactical Control

TAG The Adjutant General

TALCE Tanker Airlift Control Element

TBMCS Theater Battle Management Core Systems

TF Task Force

TFR Temporary Flight Restrictions

TLAMM Theater Lead Agent for Medical Materiel

TOC Tactical Operations Center

TPFDD Time-Phased Force and Deployment Data 

TRADOC Training and Doctrine Command

TRANSCOM Transportation Command

TTP Tactics, Techniques, and Procedures

UAS Unmanned Aerial System

UAV Unmanned Aerial Vehicle

UC Unified Command

UCMJ Uniform Code of Military Justice

US&R Urban Search and Rescue

USACE United States Army Corps of Engineers

USAF United States Air Force

USAMEDCOM United States Army Medical Command

USAR United States Army Reserve

USARNORTH United States Army North

USARPAC United States Army Pacific
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Acronyms

USC United States Code

USCG United States Coast Guard

USDA United States Department of Agriculture

USFF United States Fleet Forces Command

USFS United States Forest Service

USGS United States Geological Survey

USJFCOM United States Joint Forces Command

USMC United States Marine Corps

USN United States Navy

USNS United States Naval Ship

USNORTHCOM United States Northern Command

USPACOM United States Pacific Command

USSTRATCOM United States Strategic Command

USTRANSCOM United States Transportation Command

UTC Unit Type Code

VFR Visual Flight Rules

VMC Visual Meteorological Conditions

VOI Vessel of Interest

WARNO Warning Order

WOC Wing Operations Center

WPS Wireless Priority Service

WRS Weather Reconnaissance Squadron

XO Executive Officer
DSCA Handbook

Tactical Level Commander and Staff Toolkit

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Acronyms

NOTES
DSCA Handbook

Tactical Level Commander and Staff Toolkit

UNCLASSIFIED

You have reached the end of the 

Tactical Level Commander and Staff

Toolkit

For the Liaison Officer Toolkit, 

flip the book over.