National Response Plan

December 2004
This page intentionally left blank.
In Homeland Security Presidential Directive (HSPD)-5, the President directed the development of a new National

Response Plan (NRP) to align Federal coordination structures, capabilities, and resources into a unified, alldiscipline, and all-hazards approach to domestic incident management. This approach is unique and far reaching in

that it, for the first time, eliminates critical seams and ties together a complete spectrum of incident management

activities to include the prevention of, preparedness for, response to, and recovery from terrorism, major natural

disasters, and other major emergencies. The end result is vastly improved coordination among Federal, State, local,

and tribal organizations to help save lives and protect America's communities by increasing the speed, effectiveness,

and efficiency of incident management.

The NRP represents a true “national” framework in terms of both product and process. The NRP development

process included extensive vetting and coordination with Federal, State, local, and tribal agencies, nongovernmental

organizations, private-sector entities, and the first-responder and emergency management communities across the

country. The NRP incorporates best practices from a wide variety of incident management disciplines to include

fire, rescue, emergency management, law enforcement, public works, and emergency medical services. The

collective input we received from our public- and private-sector partners has been, and will continue to be,

absolutely critical to the implementation and continued refinement of the core concepts included in this

groundbreaking national plan.

The NRP is built on the template of the National Incident Management System (NIMS), which provides a

consistent doctrinal framework for incident management at all jurisdictional levels, regardless of the cause, size, or

complexity of the incident. The activation of the NRP and its coordinating structures and protocols—either

partially or fully—for specific Incidents of National Significance provides mechanisms for the coordination and

implementation of a wide variety of incident management and emergency assistance activities. Included in these

activities are Federal support to State, local, and tribal authorities; interaction with nongovernmental, private donor,

and private-sector organizations; and the coordinated, direct exercise of Federal authorities, when appropriate.

The NRP is also an essential element of the broader policy coordination and reconciliation mechanisms of the

Federal Government. The operational and resource coordinating structures described in the NRP are designed to

support existing White House policy mechanisms and decisionmaking entities during the response to a specific

threat or incident. Also, while the NRP itself creates no new authorities, it serves to unify and enhance the incident

management capabilities and resources of individual agencies and organizations acting under their own authorities

in response to a wide array of potential threats and hazards.

Implementation of the NRP and its supporting protocols will require extensive cooperation, collaboration, and

information-sharing across jurisdictions, as well as between the government and the private sector at all levels. The

Letter of Instruction included with the NRP provides specific guidance on the phased implementation of the plan.

I ask for your continued cooperation and assistance as we begin the implementation process for the NRP. I look

forward to working with you as we use this new foundational plan to improve our national incident management

capability across the board.

December 2004 National Response Plan | i

Preface

Tom Ridge

Secretary

Department of Homeland Security
This page intentionally left blank.

ii | National Response Plan December 2004
The National Response Plan (NRP) is an all-discipline, all-hazards plan that establishes a single, comprehensive

framework for the management of domestic incidents. It provides the structure and mechanisms for the

coordination of Federal support to State, local, and tribal incident managers and for exercising direct Federal

authorities and responsibilities. The NRP assists in the important homeland security mission of preventing terrorist

attacks within the United States; reducing the vulnerability to all natural and manmade hazards; and minimizing

the damage and assisting in the recovery from any type of incident that occurs.

By signing this letter of agreement, Federal departments and agencies and other organizations commit to:

■ Supporting NRP concepts, processes, and structures and carrying out their assigned functional responsibilities to

ensure effective and efficient incident management, including designating representatives to staff interagency

coordinating structures, as required;

■ Agreeing to the terms and conditions, as if separately signed, in the “Memorandum of Agreement: Mutual Aid for

Incidents of National Significance (non-Stafford Act),” set forth in the Financial Management Support Annex,

Attachment 3, December 2004, in the NRP (this provision is applicable only to Federal departments and agencies);

■ Providing cooperation, resources, and support to the Secretary of Homeland Security in the implementation of

the NRP, as appropriate and consistent with their own authorities and responsibilities;

■ Cooperating with appropriate Federal incident management leadership including the Principal Federal Official,

Federal Coordinating Officer, and Federal Resource Coordinator, as appropriate and consistent with their own

authorities and responsibilities, in order to enable effective and efficient incident management;

■ Modifying existing interagency and agency incident management and emergency response plans to facilitate

compliance with the NRP;

■ Forming and maintaining incident management partnerships with State, local, tribal, and regional entities, the

private sector, and nongovernmental organizations;

■ Utilizing department- and agency-specific authorities, resources, and programs to facilitate incident management

activities in accordance with the NRP; and

■ Developing, exercising, and refining headquarters and regional capabilities to ensure sustained operational

readiness in support of the NRP.

Signatory departments and agencies follow.

December 2004 National Response Plan | iii

Letter of Agreement
This page intentionally left blank.

iv | National Response Plan December 2004
December 2004 National Response Plan | v

Signatories

Ann M.Veneman

Secretary

Department of Agriculture

Donald L. Evans

Secretary

Department of Commerce

Donald H. Rumsfeld

Secretary

Department of Defense

Rod Paige

Secretary

Department of Education

Spencer Abraham

Secretary

Department of Energy

Tommy G.Thompson

Secretary

Department of Health and Human Services

Tom Ridge

Secretary

Department of Homeland Security

Alphonso Jackson

Secretary

Department of Housing and Urban Development
vi | National Response Plan December 2004

Gale A. Norton

Secretary

Department of the Interior

John Ashcroft

Attorney General

Department of Justice

Elaine L. Chao

Secretary

Department of Labor

Colin L. Powell

Secretary

Department of State

Norman Y. Mineta

Secretary

Department of Transportation

John W. Snow

Secretary

Department of the Treasury

Anthony J. Principi

Secretary

Department of Veterans Affairs

Porter J. Goss

Director of Central Intelligence

Central Intelligence Agency
December 2004 National Response Plan | vii

Michael O. Leavitt

Administrator

Environmental Protection Agency

Robert S. Mueller, III

Director

Federal Bureau of Investigation

Michael Powell

Chairman

Federal Communications Commission

Stephen A. Perry

Administrator

General Services Administration

Sean O'Keefe

Administrator

National Aeronautics and Space Administration

Ellen Engleman Conners

Chairman

National Transportation Safety Board

Nils J. Diaz

Chairman

Nuclear Regulatory Commission

Kay Coles James

Director

Office of Personnel Management
viii | National Response Plan December 2004

Hector V. Barreto

Administrator

Small Business Administration

Jo Anne B. Barnhart

Commissioner

Social Security Administration

Glenn L. McCullough, Jr.

Chairman

Tennessee Valley Authority

Andrew S. Natsios

Administrator

U.S. Agency for International Development

John E. Potter

Postmaster General and Chief Executive Officer

U.S. Postal Service

Marsha J. Evans

President and Chief Executive Officer

American Red Cross

David Eisner

Chief Executive Officer

Corporation for National and Community Service

S. Jane Morgan

President

National Voluntary Organizations Active in Disaster
General

The National Response Plan (NRP) is effective upon

issuance with a phased implementation process during the

first year. During the first 120 days of this implementation process, the Initial NRP (INRP), Federal Response

Plan (FRP), U.S. Government Domestic Terrorism Concept

of Operations Plan (CONPLAN), and Federal Radiological

Emergency Response Plan (FRERP) remain in effect. The

implementation phases are as follows:

■ Phase I – Transitional Period (0 to 60 days): This

60-day timeframe is intended to provide a transitional

period for departments and agencies and other

organizations to modify training, designate staffing of

NRP organizational elements, and become familiar

with NRP structures, processes, and protocols.

■ Phase II – Plan Modification (60 to 120 days):

This second 60-day timeframe is intended to 

provide departments and agencies the opportunity

to modify existing Federal interagency plans to

align with the NRP and conduct necessary training.

■ Phase III – Initial Implementation and Testing (120

days to 1 year): Four months after its issuance, the

NRP is to be fully implemented, and the INRP, FRP,

CONPLAN, and FRERP are superseded. Other existing

plans remain in effect, modified to align with the

NRP. During this timeframe, the Department of

Homeland Security (DHS) will conduct systematic

assessments of NRP coordinating structures,

processes, and protocols implemented for actual

Incidents of National Significance (defined on page 4

of the NRP), national-level homeland security

exercises, and National Special Security Events

(NSSEs). These assessments will gauge the plan’s

effectiveness in meeting specific objectives outlined in

Homeland Security Presidential Directive-5 (HSPD-5).

At the end of this period, DHS will conduct a 1-year

review to assess the implementation process and make

recommendations to the Secretary on necessary NRP

revisions. Following this initial review, the NRP will

begin a deliberate 4-year review and reissuance cycle.

The Secretary of Homeland Security may accelerate the

implementation of the NRP if warranted by circumstances.

Requirements

This section provides specific requirements or

recommendations for the Secretary of Homeland

Security; Federal departments and agencies; State, local,

and tribal governments; and private-sector and

nongovernmental organizations (NGOs) to enable full

NRP implementation.

Secretary of Homeland Security

Within 120 days of the issuance of this plan, in

coordination and consultation with other departments

and agencies, the Secretary of Homeland Security will:

■ Develop and publish detailed operational procedures

for the Homeland Security Operations Center

(HSOC), National Response Coordination Center

(NRCC), Interagency Incident Management Group

(IIMG), and Joint Field Office (JFO);

■ Identify appropriate assets and establish agreements

and procedures for their rapid deployment and

employment in accordance with the NRP

Catastrophic Incident Supplement;

■ Designate representatives to staff the HSOC, NRCC,

and IIMG; and

■ Develop appropriate training programs for HSOC,

IIMG, NRCC, Principal Federal Official (PFO), and

Federal Coordinating Officer (FCO) cadres.

Within 1 year of its effective date, the Secretary of

Homeland Secretary will conduct an interagency 

review to assess the effectiveness of the NRP, identify

improvements, and provide recommendations regarding

plan modifications and reissuance, if required.

Federal Departments and Agencies

As required by HSPD-5, Federal departments and

agencies will:

■ Provide cooperation, resources, and support to the

Secretary of Homeland Security in the

implementation of the NRP, as appropriate and

consistent with their own authorities and

responsibilities;

■ Designate representatives to staff the HSOC, NRCC,

and IIMG;

December 2004 National Response Plan | ix

Letter of Instruction

Implementation Guidance
■ Carry out responsibilities assigned in the Emergency

Support Function (ESF) Annexes to the NRP,

developing supplemental plans and procedures as

required;

■ Establish connectivity with and report incidents to

the National Joint Terrorism Task Force (NJTTF), the

HSOC, and the National Counterterrorism Center

(NCTC) as outlined in section V (page 46) of this

document; and

■ Within 120 days of the issuance of this plan, modify

existing interagency incident management and 

emergency response plans and protocols, to the

extent authorized by law, incorporating:

■ Linkages to key NRP processes and coordinating

structures (i.e., the IIMG, HSOC, NRCC, Regional

Response Coordination Center (RRCC), JFO, etc.);

■ Principles and terminology used in the National

Incident Management System (NIMS) and NRP;

■ NRP incident-reporting requirements;

■ Procedures for transitioning from localized

incidents to Incidents of National Significance; and

■ Accelerated resource activation, mobilization, and

deployment requirements outlined in the NRP

Catastrophic Incident Annex.

Modifications to existing Federal interagency plans

must be completed and reported to DHS within 120

days of the publication of the NRP. When it may not

be feasible for plan modifications to be completed

within 120 days (such as the National Oil and

Hazardous Substances Pollution Contingency Plan

(NCP)1

), agencies must commence modification within

this timeframe and provide a timeline for completion

to the Secretary of Homeland Security.

State, Local, and Tribal Governments and

Nongovernmental Organizations

State, local, and tribal governments and NGOs are

requested to:

■ Utilize established incident reporting protocols to

notify local and regional Joint Terrorism Task Forces

(JTTFs) and the HSOC, as appropriate, as outlined in

section V (page 46) of this document.

■ Coordinate with the HSOC regarding procedures for

establishing connectivity for domestic incident

management purposes. Local government procedures

should be coordinated with the respective State

government and/or emergency management agency.

■ Modify existing incident management and

emergency operations plans within 120 days (or no

later than the next major plan maintenance cycle) to

ensure proper alignment with NRP coordinating

structures, processes, and protocols.

■ Notify the Secretary of Homeland Security of any

substantial conflicts between this plan and State or

tribal government laws or regulations. This plan is

not intended to compromise existing State or tribal

government laws or corresponding incident

management or emergency response plans.

Federal Regional Organizations

Federal regional organizations will:

■ Designate representatives to the RRCC and Regional

Interagency Steering Committee (RISC) at the request

of the Secretary of Homeland Security;

■ Develop regional supplements to the NRP as

required; and

■ Update existing standard operating procedures

(SOPs) pertaining to the RRCC to align with NRP

requirements.

Private Sector

Private-sector owners and operators, particularly those

who represent critical elements of infrastructure or key

resources whose disruption may have national or major

regional impact, are encouraged (or in some cases

required under law) to develop appropriate emergency

response and business continuity plans and

information-sharing and incident-reporting protocols

that are tailored to the unique requirements of their

respective sector or industry, and that clearly map to

regional, State, and local emergency response plans and

information-sharing networks.

These plans and information-sharing and reporting

protocols should be consistent with the NRP Base Plan

and supporting annexes.

x | National Response Plan December 2004

1 The NCP is a regulation subject to notice and comment requirements. For modifications to the NCP, rulemaking

activities will be commenced within 120 days of publication of this plan.
The National Response Plan (NRP) consists of the

components depicted in Figure 1 on the following page.

The paragraphs below describe each of the components.

■ The Base Plan describes the structure and processes

comprising a national approach to domestic incident

management designed to integrate the efforts and

resources of Federal, State, local, tribal, private-sector,

and nongovernmental organizations. The Base Plan

includes planning assumptions, roles and

responsibilities, concept of operations, incident

management actions, and plan maintenance

instructions.

■ Appendixes provide other relevant, more detailed

supporting information, including terms, definitions,

acronyms, authorities, and a compendium of national

interagency plans.

■ The Emergency Support Function (ESF) Annexes

detail the missions, policies, structures, and

responsibilities of Federal agencies for coordinating

resource and programmatic support to States, tribes,

and other Federal agencies or other jurisdictions and

entities during Incidents of National Significance.

The introduction to the ESF Annexes summarizes the

functions of ESF coordinators and primary and

support agencies. The chart on page 12 provides a

summary of the scope of each ESF.

■ The Support Annexes provide guidance and describe

the functional processes and administrative

requirements necessary to ensure efficient and

effective implementation of NRP incident

management objectives. The Support Annexes are

described below.

December 2004 National Response Plan | xi

Foreword

Organization of the National Response Plan

Support Annexes

■ Financial Management provides guidance for NRP implementation to ensure that incident-related funds are

provided expeditiously and that financial management activities are conducted in accordance with established

law, policies, regulations, and standards.

■ International Coordination provides guidance for carrying out responsibilities regarding international

coordination in support of the Federal response to domestic Incidents of National Significance.

■ Logistics Management describes the framework within which the overall NRP logistics management function

operates. It also outlines logistics management responsibilities and mechanisms for integrating Federal, State,

local, and tribal resource providers.

■ Private-Sector Coordination outlines processes to ensure effective incident management coordination and

integration with the private sector, including representatives of the Nation’s Critical Infrastructure/Key

Resources (CI/KR) sectors and other industries.

■ Public Affairs describes interagency incident communications procedures designed to enable the coordination

and dissemination of timely public information during Incidents of National Significance.

■ Science and Technology provides guidance and mechanisms to ensure that all levels of government can

leverage the Nation’s science and technology resources efficiently and effectively in the management of

Incidents of National Significance.

■ Tribal Relations describes the policies, responsibilities, and concept of operations for effective coordination

and interaction with tribal governments and communities during Incidents of National Significance.

■ Volunteer and Donations Management provides guidance on volunteer and donations management functions

related to Incidents of National Significance.

■ Worker Safety and Health details processes to ensure coordinated, comprehensive efforts to identify responder

safety and health risks and implement procedures to minimize or eliminate illness or injuries during incident

management and emergency response activities.
xii | National Response Plan December 2004

Emergency Support Function Annexes

Support Annexes

Incident Annexes

Appendixes

■ Glossary of Key Terms

■ List of Acronyms

■ Authorities and References

■ Compendium of National/International Interagency Plans

■ Overview of Initial Federal Involvement Under 

the Stafford Act

■ Overview of Federal-to-Federal Support in 

Non-Stafford Act Situations

■ ESF #1 - Transportation

■ ESF #2 - Communications 

■ ESF #3 - Public Works and Engineering

■ ESF #4 - Firefighting

■ ESF #5 - Emergency Management 

■ ESF #6 - Mass Care, Housing, and Human Services 

■ ESF #7 - Resource Support 

■ ESF #8 - Public Health and Medical Services

■ ESF #9 - Urban Search and Rescue

■ ESF #10 -Oil and Hazardous Materials Response 

■ ESF #11 -Agriculture and Natural Resources 

■ ESF #12 -Energy

■ ESF #13 -Public Safety and Security

■ ESF #14 - Long-Term Community Recovery and Mitigation

■ ESF #15 -External Affairs

■ Financial Management

■ International Coordination 

■ Logistics Management

■ Private-Sector Coordination 

■ Public Affairs 

■ Science and Technology

■ Tribal Relations

■ Volunteer and Donations Management 

■ Worker Safety and Health

■ Biological Incident 

■ Catastrophic Incident 

■ Cyber Incident 

■ Food and Agriculture Incident (to be published in a

subsequent version of this plan)

■ Nuclear/Radiological Incident 

■ Oil and Hazardous Materials Incident 

■ Terrorism Incident Law Enforcement and Investigation

FIGURE 1. Organization of the National Response Plan

Base Plan
Incident Annexes

■ The Biological Incident Annex describes incident management activities related to a biological terrorism

event, pandemic, emerging infectious disease, or novel pathogen outbreak.

■ The Catastrophic Incident Annex establishes the strategy for implementing and coordinating an accelerated

national response to a catastrophic incident.

■ The Cyber Incident Annex establishes procedures for a multidisciplinary, broad-based approach to prepare

for, remediate, and recover from catastrophic cyber events impacting critical national processes and the

national economy.

■ The Food and Agriculture Incident Annex describes incident management activities related to a terrorist

attack, major disaster, or other emergency involving the Nation’s agriculture and food systems.

(To be published in a subsequent version of this plan.)

■ The Nuclear/Radiological Incident Annex describes incident management activities related to 

nuclear/radiological incidents.

■ The Oil and Hazardous Materials Incident Annex describes incident management activities related to 

certain nationally significant oil and hazardous materials pollution incidents.

■ The Terrorism Incident Law Enforcement and Investigation Annex describes law enforcement and 

criminal investigation coordinating structures and processes in response to a terrorist event.

■ The Incident Annexes address contingency or hazard

situations requiring specialized application of the NRP.

The Incident Annexes describe the missions, policies,

responsibilities, and coordination processes that govern

the interaction of public and private entities engaged in

incident management and emergency response

operations across a spectrum of potential hazards.

These annexes are typically augmented by a variety of

supporting plans and operational supplements. The

Incident Annexes are described below.

December 2004 National Response Plan | xiii
xiv | National Response Plan December 2004

This page intentionally left blank.
Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i

Letter of Agreement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iii

Signatories . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . v

Letter of Instruction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ix

Foreword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xi

I. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Purpose . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2

Scope and Applicability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Incident Management Activities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Authorities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Key Concepts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

II. Planning Assumptions and Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

III. Roles and Responsibilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

State, Local, and Tribal Governments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

Federal Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Nongovernmental and Volunteer Organizations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

Private Sector . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Citizen Involvement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

IV. Concept of Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

General . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Overall Coordination of Federal Incident Management Activities . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Concurrent Implementation of Other Plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

Organizational Structure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Principal NRP Organizational Elements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

Emergency Response and Support Teams (Field Level) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39

Defense Support of Civil Authorities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

Federal Law Enforcement Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

Proactive Federal Response to Catastrophic Events . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

U.S. Possessions and Freely Associated States . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .44

External Affairs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

V. Incident Management Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

NRP Operations Under HSAS Threat Conditions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

VI. Ongoing Plan Management and Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58

Coordination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58

Plan Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

The NIMS Integration Center . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

The NRP and National Preparedness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59

NRP-Supporting Documents and Standards for Other Federal Emergency Plans . . . . . . . . . . . . 60

Table of Contents

December 2004 National Response Plan | xv
Appendixes

1. Glossary of Key Terms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63

2. List of Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75

3. Authorities and References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 78

4. Compendium of National/International Interagency Plans . . . . . . . . . . . . . . . . . . . . . . . . . . 89

5. Overview of Initial Federal Involvement Under the Stafford Act . . . . . . . . . . . . . . . . . . . . . . . 91

6. Overview of Federal-to-Federal Support in Non-Stafford Act Situations . . . . . . . . . . . . . . . . . . 94

Emergency Support Function Annexes

ESF #1 – Transportation

ESF #2 – Communications

ESF #3 – Public Works and Engineering

ESF #4 – Firefighting

ESF #5 – Emergency Management

ESF #6 – Mass Care, Housing, and Human Services

ESF #7 – Resource Support

ESF #8 – Public Health and Medical Services

ESF #9 – Urban Search and Rescue

ESF #10 – Oil and Hazardous Materials Response

ESF #11 – Agriculture and Natural Resources

ESF #12 – Energy

ESF #13 – Public Safety and Security

ESF #14 – Long-Term Community Recovery and Mitigation

ESF #15 – External Affairs

Support Annexes

Financial Management

International Coordination

Logistics Management

Private-Sector Coordination

Public Affairs

Science and Technology

Tribal Relations

Volunteer and Donations Management

Worker Safety and Health

Incident Annexes

Biological Incident

Catastrophic Incident

Cyber Incident

Food and Agriculture Incident (to be published in a subsequent version of this plan)

Nuclear/Radiological Incident

Oil and Hazardous Materials Incident

Terrorism Incident Law Enforcement and Investigation

xvi | National Response Plan December 2004
The Nation’s domestic incident management landscape

changed dramatically following the terrorist attacks of

September 11, 2001. Today’s threat environment includes

not only the traditional spectrum of manmade and

natural hazards—wildland and urban fires, floods, oil

spills, hazardous materials releases, transportation

accidents, earthquakes, hurricanes, tornadoes, pandemics,

and disruptions to the Nation’s energy and information

technology infrastructure—but also the deadly and

devastating terrorist arsenal of chemical, biological,

radiological, nuclear, and high-yield explosive weapons.

These complex and emerging 21st century threats and

hazards demand a unified and coordinated national

approach to domestic incident management. The

National Strategy for Homeland Security; Homeland

Security Act of 2002; and Homeland Security

Presidential Directive-5 (HSPD-5), Management of

Domestic Incidents, establish clear objectives for a

concerted national effort to prevent terrorist attacks

within the United States; reduce America’s vulnerability

to terrorism, major disasters, and other emergencies;

and minimize the damage and recover from attacks,

major disasters, and other emergencies that occur.

Development and Implementation of 

a National Response Plan

Achieving these homeland security objectives is a 

challenge requiring bold steps and adjustments to

established structures, processes, and protocols. An

important initiative called for in the above documents

is the development and implementation of a National

Response Plan (NRP), predicated on a new National

Incident Management System (NIMS), that aligns the

patchwork of Federal special-purpose incident

management and emergency response plans into an

effective and efficient structure. Together, the NRP and

the NIMS (published March 1, 2004) integrate the

capabilities and resources of various governmental

jurisdictions, incident management and emergency

response disciplines, nongovernmental organizations

(NGOs), and the private sector into a cohesive,

coordinated, and seamless national framework for

domestic incident management.

The NRP, using the NIMS, is an all-hazards plan that

provides the structure and mechanisms for nationallevel policy and operational coordination for domestic

incident management. Consistent with the model

provided in the NIMS, the NRP can be partially or fully

implemented in the context of a threat, anticipation of

a significant event, or the response to a significant

event. Selective implementation through the activation

of one or more of the system’s components allows

maximum flexibility in meeting the unique operational

and information-sharing requirements of the situation

at hand and enabling effective interaction between

various Federal and non-Federal entities.

The NRP incorporates relevant portions of and, upon

full implementation, supersedes the Initial National

Response Plan (INRP), Federal Response Plan (FRP),

U.S. Government Interagency Domestic Terrorism

Concept of Operations Plan (CONPLAN), and Federal

Radiological Emergency Response Plan (FRERP). The

NRP, as the core operational plan for national incident

management, also establishes national-level coordinating

structures, processes, and protocols that will be

incorporated into certain existing Federal interagency

incident- or hazard-specific plans (such as the National

Oil and Hazardous Substances Pollution Contingency

Plan (NCP)) that are designed to implement the specific

statutory authorities and responsibilities of various

departments and agencies in particular contingency

NATIONAL RESPONSE PLAN

I. Introduction

December 2004 National Response Plan | 1

The NRP

A concerted national effort to prevent terrorist attacks

within the United States; reduce America's vulnerability

to terrorism, major disasters, and other emergencies;

and minimize the damage and recover from attacks,

major disasters, and other emergencies that occur.

The NIMS 

Provides a nationwide template enabling Federal,

State, local, and tribal governments and 

private-sector and nongovernmental organizations to

work together effectively and efficiently to prevent,

prepare for, respond to, and recover from domestic

incidents regardless of cause, size, or complexity.
Purpose

The purpose of the NRP is to establish a comprehensive,

national, all-hazards approach to domestic incident

management across a spectrum of activities including

prevention, preparedness, response, and recovery.

The NRP incorporates best practices and procedures from

various incident management disciplines—homeland

security, emergency management, law enforcement,

firefighting, hazardous materials response, public works,

public health, emergency medical services, and responder

and recovery worker health and safety—and integrates

them into a unified coordinating structure.

The NRP provides the framework for Federal

interaction with State, local, and tribal governments;

the private sector; and NGOs in the context of

domestic incident prevention, preparedness, response,

and recovery activities. It describes capabilities and

resources and establishes responsibilities, operational

processes, and protocols to help protect the Nation

from terrorist attacks and other natural and manmade

hazards; save lives; protect public health, safety,

property, and the environment; and reduce adverse

psychological consequences and disruptions. Finally,

the NRP serves as the foundation for the development

of detailed supplemental plans and procedures to

effectively and efficiently implement Federal incident

management activities and assistance in the context of

specific types of incidents.

The NRP, using the NIMS, establishes mechanisms to:

■ Maximize the integration of incident-related

prevention, preparedness, response, and recovery

activities;

■ Improve coordination and integration of Federal,

State, local, tribal, regional, private-sector, and

nongovernmental organization partners;

■ Maximize efficient utilization of resources needed 

for effective incident management and Critical

Infrastructure/Key Resources (CI/KR) protection 

and restoration;

■ Improve incident management communications and

increase situational awareness across jurisdictions and

between the public and private sectors;

■ Facilitate emergency mutual aid and Federal

emergency support to State, local, and tribal

governments;

■ Facilitate Federal-to-Federal interaction and

emergency support;

■ Provide a proactive and integrated Federal response

to catastrophic events; and

■ Address linkages to other Federal incident

management and emergency response plans

developed for specific types of incidents or hazards.

scenarios. These plans are linked to the NRP in the

context of Incidents of National Significance (defined

on page 4), but remain as stand-alone documents in

that they also provide detailed protocols for responding

to routine incidents that normally are managed by

Federal agencies without the need for Department of

Homeland Security (DHS) coordination. The NRP also

incorporates other existing Federal emergency response

and incident management plans (with appropriate

modifications and revisions) as integrated components,

operational supplements, or supporting tactical plans.

Further details on NRP-supporting plans and documents

are included in section VI (page 60).

Existing Authorities

Nothing in this plan alters or impedes the ability of

Federal, State, local, or tribal departments and agencies

to carry out their specific authorities or perform their

responsibilities under all applicable laws, Executive

orders, and directives. Additionally, nothing in this

plan is intended to impact or impede the ability of any

Federal department or agency head to take an issue of

concern directly to the President, the Assistant to the

President for Homeland Security, the Assistant to the

President for National Security Affairs, or any other

member of the President’s staff.

2 | National Response Plan December 2004

Purpose 

To establish a comprehensive, national, all-hazards

approach to domestic incident management across

a spectrum of activities including prevention,

preparedness, response, and recovery.
Scope and Applicability

The NRP covers the full range of complex and

constantly changing requirements in anticipation of 

or in response to threats or acts of terrorism, major

disasters, and other emergencies. The NRP also

provides the basis to initiate long-term community

recovery and mitigation activities.

The NRP establishes interagency and multijurisdictional

mechanisms for Federal Government involvement in,

and DHS coordination of, domestic incident

management operations.

This includes coordinating structures and processes for

incidents requiring:

■ Federal support to State, local, and tribal governments;

■ Federal-to-Federal support;

■ The exercise of direct Federal authorities and

responsibilities, as appropriate under the law; and

■ Public and private-sector domestic incident

management integration.

This plan distinguishes between incidents that require

DHS coordination, termed Incidents of National

Significance, and the majority of incidents occurring

each year that are handled by responsible jurisdictions

or agencies through other established authorities and

existing plans.

In addition, the NRP:

■ Recognizes and incorporates the various

jurisdictional and functional authorities of Federal

departments and agencies; State, local, and tribal

governments; and private-sector organizations in

domestic incident management.

■ Details the specific domestic incident management

roles and responsibilities of the Secretary of

Homeland Security, Attorney General, Secretary of

Defense, Secretary of State, and other departments

and agencies involved in domestic incident

management as defined in HSPD-5 and other relevant

statutes and directives.

■ Establishes the multiagency organizational structures

and processes required to implement the authorities,

roles, and responsibilities of the Secretary of

Homeland Security as the “principal Federal official”

for domestic incident management.

This plan is applicable to all Federal departments and

agencies that may be requested to provide assistance or

conduct operations in the context of actual or potential

Incidents of National Significance. This includes the

American Red Cross, which functions as an Emergency

Support Function (ESF) primary organization in

coordinating the use of mass care resources in a

Presidentially declared disaster or emergency. The NRP

is applicable to incidents that may occur at sites under

the control of the Legislative or Judicial Branches of the

Federal Government.

Based on the criteria established in HSPD-5, Incidents

of National Significance are those high-impact events

that require a coordinated and effective response by an

appropriate combination of Federal, State, local, tribal,

private-sector, and nongovernmental entities in order

to save lives, minimize damage, and provide the basis

for long-term community recovery and mitigation

activities.

December 2004 National Response Plan | 3

NRP Scope

Covers the full range of complex and constantly

changing requirements in anticipation of or in

response to threats or acts of terrorism, major 

disasters, and other emergencies.

NRP Applicability 

The NRP applies to all Federal departments and

agencies that may be requested to provide

assistance or conduct operations in actual or

potential Incidents of National Significance. These

incidents require a coordinated response by an

appropriate combination of Federal, State, local,

tribal, private-sector, and nongovernmental entities.
This plan addresses the full spectrum of activities

related to domestic incident management, including

prevention, preparedness, response, and recovery

actions. The NRP focuses on those activities that are

directly related to an evolving incident or potential

incident rather than steady-state preparedness or

readiness activities conducted in the absence of a

specific threat or hazard.

Additionally, since Incidents of National Significance

typically result in impacts far beyond the immediate or

initial incident area, the NRP provides a framework to

enable the management of cascading impacts and

multiple incidents as well as the prevention of and

preparation for subsequent events. Examples of

incident management actions from a national

perspective include:

■ Increasing nationwide public awareness;

■ Assessing trends that point to potential terrorist activity;

■ Elevating the national Homeland Security Advisory

System (HSAS) alert condition and coordinating

protective measures across jurisdictions;

■ Increasing countermeasures such as inspections,

surveillance, security, counterintelligence, and

infrastructure protection;

■ Conducting public health surveillance and assessment

processes and, where appropriate, conducting a wide

range of prevention measures to include, but not be

limited to, immunizations;

■ Providing immediate and long-term public health

and medical response assets;

■ Coordinating Federal support to State, local, and

tribal authorities in the aftermath of an incident;

■ Providing strategies for coordination of Federal

resources required to handle subsequent events;

■ Restoring public confidence after a terrorist attack; and

■ Enabling immediate recovery activities, as well as addressing long-term consequences in the impacted area.

The NRP bases the definition of Incidents of National Significance on situations related to the following four

criteria set forth in HSPD-5:

1. A Federal department or agency acting under its own authority has requested the assistance of the Secretary of

Homeland Security.

2. The resources of State and local authorities are overwhelmed and Federal assistance has been requested by the

appropriate State and local authorities. Examples include:

■ Major disasters or emergencies as defined under the Stafford Act; and

■ Catastrophic incidents (see definition on page 43).

3. More than one Federal department or agency has become substantially involved in responding to an incident.

Examples include:

■ Credible threats, indications or warnings of imminent terrorist attack, or acts of terrorism directed

domestically against the people, property, environment, or political or legal institutions of the United States

or its territories or possessions; and

■ Threats or incidents related to high-profile, large-scale events that present high-probability targets such as

National Special Security Events (NSSEs) and other special events as determined by the Secretary of

Homeland Security, in coordination with other Federal departments and agencies.

4. The Secretary of Homeland Security has been directed to assume responsibility for managing a domestic

incident by the President.

Incident Management Activities

Incidents of National Significance

Pursuant to HSPD-5, as the principal Federal official for

domestic incident management, the Secretary of

Homeland Security declares Incidents of National

Significance (in consultation with other departments and

agencies as appropriate) and provides coordination for

Federal operations and/or resources, establishes

reporting requirements, and conducts ongoing

communications with Federal, State, local, tribal, privatesector, and nongovernmental organizations to maintain

situational awareness, analyze threats, assess national

implications of threat and operational response activities,

and coordinate threat or incident response activities.

4 | National Response Plan December 2004
Key Concepts

This section summarizes key concepts that are reflected

throughout the NRP.

■ Systematic and coordinated incident management,

including protocols for:

■ Incident reporting;

■ Coordinated action;

■ Alert and notification;

■ Mobilization of Federal resources to augment

existing Federal, State, local, and tribal capabilities;

■ Operating under differing threats or threat levels; and

■ Integration of crisis and consequence management

functions.

■ Proactive notification and deployment of Federal

resources in anticipation of or in response to

catastrophic events in coordination and collaboration

with State, local, and tribal governments and private

entities when possible.

■ Organizing interagency efforts to minimize damage,

restore impacted areas to pre-incident conditions if

feasible, and/or implement programs to mitigate

vulnerability to future events.

■ Coordinating incident communication, worker safety

and health, private-sector involvement, and other

activities that are common to the majority of

incidents (see Support Annexes).

■ Organizing ESFs to facilitate the delivery of critical

Federal resources, assets, and assistance. Federal

departments and agencies are assigned to lead or

support ESFs based on authorities, resources, and

capabilities.

■ Providing mechanisms for vertical and horizontal

coordination, communications, and informationsharing in response to threats or incidents. These

mechanisms facilitate coordination among State,

local, and tribal entities and the Federal Government,

as well as between the public and private sectors.

■ Facilitating Federal support to Federal departments

and agencies acting under the requesting

department’s or agency’s own authorities.

■ Developing detailed supplemental operations, tactical,

and hazard-specific contingency plans and

procedures.

■ Providing the basis for coordination of interagency

and intergovernmental planning, training, exercising,

assessment, coordination, and information exchange.

Authorities

Various Federal statutory authorities and policies

provide the basis for Federal actions and activities in

the context of domestic incident management. The

NRP uses the foundation provided by the Homeland

Security Act, HSPD-5, and the Robert T. Stafford

Disaster Relief and Emergency Assistance Act (Stafford

Act) to provide a comprehensive, all-hazards approach

to domestic incident management. Nothing in the

NRP alters the existing authorities of individual Federal

departments and agencies. The NRP does not convey

new authorities upon the Secretary of Homeland

Security or any other Federal official.

Rather, this plan establishes the coordinating structures,

processes, and protocols required to integrate the

specific statutory and policy authorities of various

Federal departments and agencies in a collective

framework for action to include prevention,

preparedness, response, and recovery activities.

Appendix 3 provides a summary of key statutes,

Executive orders, and Presidential directives that

provide additional authority and policy direction

relevant to domestic incident management.

The NRP may be used in conjunction with other

Federal incident management and emergency

operations plans developed under these and other

authorities as well as memorandums of understanding

(MOUs) among various Federal agencies.

December 2004 National Response Plan | 5
The NRP is based on the planning assumptions and

considerations presented in this section.

■ Incidents are typically managed at the lowest possible

geographic, organizational, and jurisdictional level.

■ Incident management activities will be initiated and

conducted using the principles contained in the NIMS.

■ The combined expertise and capabilities of

government at all levels, the private sector, and

nongovernmental organizations will be required to

prevent, prepare for, respond to, and recover from

Incidents of National Significance.

■ Incidents of National Significance require the

Secretary of Homeland Security to coordinate

operations and/or resources, and may:

■ Occur at any time with little or no warning in the

context of a general or specific threat or hazard;

■ Require significant information-sharing at the

unclassified and classified levels across multiple

jurisdictions and between the public and private

sectors;

■ Involve single or multiple geographic areas;

■ Have significant international impact and/or

require significant international informationsharing, resource coordination, and/or assistance;

■ Span the spectrum of incident management to

include prevention, preparedness, response, and

recovery;

■ Involve multiple, highly varied hazards or threats

on a local, regional, or national scale;

■ Result in numerous casualties; fatalities; displaced

people; property loss; disruption of normal lifesupport systems, essential public services, and 

basic infrastructure; and significant damage to 

the environment;

■ Impact critical infrastructures across sectors;

■ Overwhelm capabilities of State, local, and tribal

governments, and private-sector infrastructure

owners and operators;

■ Attract a sizeable influx of independent,

spontaneous volunteers and supplies;

■ Require extremely short-notice Federal asset

coordination and response timelines; and

■ Require prolonged, sustained incident management

operations and support activities.

■ Top priorities for incident management are to:

■ Save lives and protect the health and safety of the

public, responders, and recovery workers;

■ Ensure security of the homeland;

■ Prevent an imminent incident, including acts of

terrorism, from occurring;

■ Protect and restore critical infrastructure and key

resources;

■ Conduct law enforcement investigations to resolve

the incident, apprehend the perpetrators, and

collect and preserve evidence for prosecution

and/or attribution;

■ Protect property and mitigate damages and impacts to

individuals, communities, and the environment; and

■ Facilitate recovery of individuals, families,

businesses, governments, and the environment.

■ Deployment of resources and incident management

actions during an actual or potential terrorist

incident are conducted in coordination with the

Department of Justice (DOJ).

■ Departments and agencies at all levels of government

and certain NGOs, such as the American Red Cross,

may be required to deploy to Incidents of National

Significance on short notice to provide timely and

effective mutual aid and/or intergovernmental

assistance.

■ The degree of Federal involvement in incident

operations depends largely upon specific Federal

authority or jurisdiction. Other factors that may be

considered include:

■ The State, local, or tribal needs and/or requests for

external support, or ability to manage the incident;

■ The economic ability of the affected entity to

recover from the incident;

■ The type or location of the incident;

■ The severity and magnitude of the incident; and

■ The need to protect the public health or welfare or

the environment.

■ Federal departments and agencies support the

homeland security mission in accordance with national

authorities and guidance and are expected to provide:

■ Initial and/or ongoing response, when warranted,

under their own authorities and funding;

■ Alert, notification, pre-positioning, and timely

delivery of resources to enable the management of

II. Planning Assumptions & Considerations

6 | National Response Plan December 2004
potential and actual Incidents of National

Significance; and

■ Proactive support for catastrophic or potentially

catastrophic incidents using protocols for expedited

delivery of resources.

■ For Incidents of National Significance that are

Presidentially declared disasters or emergencies,

Federal support to States is delivered in accordance

with relevant provisions of the Stafford Act (see

Appendix 3, Authorities and References). (Note that

while all Presidentially declared disasters and

emergencies under the Stafford Act are considered

Incidents of National Significance, not all Incidents of

National Significance necessarily result in disaster or

emergency declarations under the Stafford Act.)

Under provisions of the Stafford Act and applicable 

regulations:

■ A Governor may request the President to declare a

major disaster or emergency if the Governor finds

that effective response to the event is beyond the

combined response capabilities of the State and

affected local governments. Based on the findings of

a joint Federal-State-local Preliminary Damage

Assessment (PDA) indicating the damages are of

sufficient severity and magnitude to warrant assistance

under the act, the President may grant a major disaster

or emergency declaration. (Note: In a particularly

fast-moving or clearly devastating disaster, the PDA

process may be deferred until after the declaration.)

■ If the President determines that an emergency exists

where the primary responsibility for response rests

with the Government of the United States, or

because the emergency involves an area or facility

for which the Federal Government exercises

exclusive or preeminent primary responsibility and

authority, the President may unilaterally direct the

provision of assistance under the act and will, if

practicable, consult with the Governor of the State.

■ DHS can use limited pre-declaration authorities to

move initial response resources (critical goods

typically needed in the immediate aftermath of a

disaster such as food, water, emergency generators,

etc.) closer to a potentially affected area.

■ Federal assistance takes many forms—including the

direct provision of goods and services, financial

assistance (through insurance, grants, loans, and

direct payments), and technical assistance—and

can come from various sources.

■ In a major disaster or emergency as defined in the

Stafford Act, the President “may direct any Federal

agency, with or without reimbursement, to utilize

its authorities and the resources granted to it under

Federal law (including personnel, equipment,

supplies, facilities, and managerial, technical, and

advisory services) in support of State and local

assistance efforts...” [sections 402(a)(1) and

502(a)(1) of the Stafford Act, 42 U.S.C. §

5170a(1) and § 5192(a)(1)].

■ In an actual or potential Incident of National

Significance that is not encompassed by the

Stafford Act, the President may instruct a Federal

department or agency, subject to any statutory

limitations on the department or agency, to utilize

the authorities and resources granted to it by

Congress. In accordance with HSPD-5, Federal

departments and agencies are expected to provide

their full and prompt cooperation, available

resources, and support, as appropriate and

consistent with their own responsibilities for

protecting national security.

■ Federal-to-Federal support refers to the circumstance

in which a Federal department or agency requests

Federal resource support under the NRP that is not

addressed by the Stafford Act or other mechanisms

(e.g., Executive orders, MOUs, memorandums of

agreement (MOAs), etc.).

This support:

■ Is coordinated by DHS using the multiagency

coordination structures established in the NRP and

in accordance with the NIMS;

■ Generally is funded by the Federal entity with

primary responsibility and statutory authority for

the incident in accordance with provisions of the

Economy Act, 31 U.S.C. 1535, unless other

statutory authorities exist;

■ Is facilitated by the interagency MOU for Mutual

Aid, and executed at the time of the incident

through interagency agreements (see the Financial

Management Support Annex for more information);

■ May include support to incident operations at sites

under the control of the Legislative or Judicial

Branches of the Federal Government; and

■ May be used to coordinate U.S. Government

support in the event of an overseas incident, if

recommended by the Department of State (DOS).

December 2004 National Response Plan | 7
Police, fire, public health and medical, emergency

management, public works, environmental response,

and other personnel are often the first to arrive and the

last to leave an incident site. In some instances, a

Federal agency in the local area may act as a first

responder, and the local assets of Federal agencies may

be used to advise or assist State or local officials in

accordance with agency authorities and procedures.

Mutual aid agreements provide mechanisms to

mobilize and employ resources from neighboring

jurisdictions to support the incident command.

When State resources and capabilities are

overwhelmed, Governors may request Federal assistance

under a Presidential disaster or emergency declaration.

Summarized below are the responsibilities of the

Governor, Local Chief Executive Officer, and Tribal

Chief Executive Officer.

Governor

As a State’s chief executive, the Governor is responsible

for the public safety and welfare of the people of that

State or territory. The Governor:

■ Is responsible for coordinating State resources to

address the full spectrum of actions to prevent,

prepare for, respond to, and recover from incidents in

an all-hazards context to include terrorism, natural

disasters, accidents, and other contingencies;

■ Under certain emergency conditions, typically has

police powers to make, amend, and rescind orders

and regulations;

■ Provides leadership and plays a key role in

communicating to the public and in helping people,

businesses, and organizations cope with the

consequences of any type of declared emergency

within State jurisdiction;

■ Encourages participation in mutual aid and

implements authorities for the State to enter into

mutual aid agreements with other States, tribes, and

territories to facilitate resource-sharing;

■ Is the Commander-in-Chief of State military forces

(National Guard when in State Active Duty or Title 32

Status and the authorized State militias); and

■ Requests Federal assistance when it becomes clear

that State or tribal capabilities will be insufficient or

have been exceeded or exhausted.

Local Chief Executive Officer

A mayor or city or county manager, as a jurisdiction’s

chief executive, is responsible for the public safety and

welfare of the people of that jurisdiction. The Local

Chief Executive Officer:

■ Is responsible for coordinating local resources to

address the full spectrum of actions to prevent,

prepare for, respond to, and recover from incidents

involving all hazards including terrorism, natural

disasters, accidents, and other contingencies;

■ Dependent upon State and local law, has

extraordinary powers to suspend local laws and

ordinances, such as to establish a curfew, direct

evacuations, and, in coordination with the local

health authority, to order a quarantine;

■ Provides leadership and plays a key role in communicating to the public, and in helping people, businesses, and organizations cope with the consequences of

any type of domestic incident within the jurisdiction;

■ Negotiates and enters into mutual aid agreements with

other jurisdictions to facilitate resource-sharing; and

■ Requests State and, if necessary, Federal assistance

through the Governor of the State when the jurisdiction’s capabilities have been exceeded or exhausted.

Tribal Chief Executive Officer

The Tribal Chief Executive Officer is responsible for the

public safety and welfare of the people of that tribe.

The Tribal Chief Executive Officer, as authorized by

tribal government:

■ Is responsible for coordinating tribal resources to

address the full spectrum of actions to prevent,

prepare for, respond to, and recover from incidents

involving all hazards including terrorism, natural

disasters, accidents, and other contingencies;

■ Has extraordinary powers to suspend tribal laws and

ordinances, such as to establish a curfew, direct

evacuations, and order a quarantine;

III. Roles and Responsibilities

This section discusses the roles and responsibilities of Federal, State, local, tribal, private-sector, and

nongovernmental organizations and citizens involved in support of domestic incident management.

State, Local, and Tribal Governments

8 | National Response Plan December 2004
Federal Government

Department of Homeland Security

The Homeland Security Act of 2002 established DHS to

prevent terrorist attacks within the United States;

reduce the vulnerability of the United States to

terrorism, natural disasters, and other emergencies; and

minimize the damage and assist in the recovery from

terrorist attacks, natural disasters, and other

emergencies. The act also designates DHS as “a focal

point regarding natural and manmade crises and

emergency planning.”

Secretary of Homeland Security

Pursuant to HSPD-5, the Secretary of Homeland Security

is responsible for coordinating Federal operations

within the United States to prepare for, respond to, and

recover from terrorist attacks, major disasters, and other

emergencies. HSPD-5 further designates the Secretary

of Homeland Security as the “principal Federal official”

for domestic incident management.

In this role, the Secretary is also responsible for

coordinating Federal resources utilized in response to or

recovery from terrorist attacks, major disasters, or other

emergencies if and when any of the following four

conditions applies:

(1) a Federal department or agency acting under its

own authority has requested DHS assistance;

(2) the resources of State and local authorities are overwhelmed and Federal assistance has been requested;

(3) more than one Federal department or agency has

become substantially involved in responding to the

incident; or

(4) the Secretary has been directed to assume incident

management responsibilities by the President.

Department of Justice 

The Attorney General is the chief law enforcement 

officer in the United States.

Attorney General

In accordance with HSPD-5 and other relevant statutes

and directives, the Attorney General has lead

responsibility for criminal investigations of terrorist

acts or terrorist threats by individuals or groups inside

the United States, or directed at U.S. citizens or

institutions abroad, where such acts are within the

Federal criminal jurisdiction of the United States, as

well as for related intelligence-collection activities

within the United States, subject to applicable laws,

Executive orders, directives, and procedures.

Generally acting through the Federal Bureau of

Investigation (FBI), the Attorney General, in cooperation

with other Federal departments and agencies engaged in

activities to protect national security, coordinates the

activities of the other members of the law enforcement

community to detect, prevent, preempt, and disrupt

terrorist attacks against the United States. This includes

actions to prevent, preempt, and disrupt specific

terrorist threats or actual incidents that are based upon

specific intelligence or law enforcement information.

Nothing in this plan derogates the Attorney General's

status or responsibilities.

Following a terrorist threat or an actual incident that

falls within the criminal jurisdiction of the United

States, the full capabilities of the United States will be

dedicated to assisting the Attorney General to identify

the perpetrators and bring them to justice, consistent

■ Provides leadership and plays a key role in

communicating to the tribal nation, and in helping

people, businesses, and organizations cope with the

consequences of any type of domestic incident

within the jurisdiction;

■ Negotiates and enters into mutual aid agreements with

other tribes/jurisdictions to facilitate resource-sharing;

■ Can request State and Federal assistance through the

Governor of the State when the tribe’s capabilities

have been exceeded or exhausted; and

■ Can elect to deal directly with the Federal Government.

(Although a State Governor must request a Presidential

disaster declaration on behalf of a tribe under the

Stafford Act, Federal agencies can work directly with

the tribe within existing authorities and resources.)

December 2004 National Response Plan | 9
with U.S. law and with authorities of other Federal

departments and agencies to protect national security.

Department of Defense (DOD)

DOD has significant resources that may be available to

support the Federal response to an Incident of National

Significance.

Secretary of Defense

The Secretary of Defense authorizes Defense Support of

Civil Authorities (DSCA) for domestic incidents as

directed by the President or when consistent with

military readiness operations and appropriate under the

circumstances and the law. The Secretary of Defense

retains command of military forces under DSCA, as

with all other situations and operations.

Concepts of “command” and “unity of command” have

distinct legal and cultural meanings for military forces and

operations. For military forces, command runs from the

President to the Secretary of Defense to the Commander of

the combatant command to the commander of the forces.

The “Unified Command” concept utilized by civil authorities is distinct from the military chain of command.

Nothing in this plan impairs or otherwise affects the

authority of the Secretary of Defense over the DOD, including the chain of command for military forces from the

President as Commander in Chief, to the Secretary of

Defense, to the commander of military forces, or military

command and control procedures. The Secretary of Defense

shall provide defense support of civil authorities for domestic incidents as directed by the President or when consistent

with military readiness and appropriate under the circumstances and the law. The Secretary of Defense shall retain

command of military forces providing civil support.

Department of State

DOS has international coordination responsibilities.

Secretary of State

The Secretary of State is responsible for coordinating

international prevention, preparedness, response, and

recovery activities relating to domestic incidents, and for

the protection of U.S. citizens and U.S. interests overseas.

Other Federal Agencies

During an Incident of National Significance, other Federal

departments or agencies may play primary, coordinating,

and/or support roles based on their authorities and

resources and the nature of the incident. In situations

where a Federal agency has jurisdictional authority and

responsibility for directing or managing a major aspect of

the response, that agency is part of the national leadership

for the incident and participates as a Senior Federal Official

(SFO) or Senior Federal Law Enforcement Official (SFLEO)

in the Joint Field Office (JFO) Coordination Group at the

field level, and as part of the Interagency Incident

Management Group (IIMG) and/or Homeland Security

Council (HSC)/National Security Council (NSC) Policy

Coordination Committees (PCC). (See section IV, page 22.)

Some Federal agencies with jurisdictional authority and

responsibility may also participate in the Unified Command

at the Incident Command Post (ICP). Federal departments

and agencies participate in the ESF structure as coordinators,

primary agencies, and/or support agencies and/or as

required to support incident management activities.

HSPD-5 directs the heads of all Federal departments and

agencies, in the context of domestic incident management,

to “provide their full and prompt cooperation, resources,

and support, as appropriate and consistent with their own

responsibilities for protecting our national security, to the

Secretary of Homeland Security, the Attorney General, the

Secretary of Defense, and the Secretary of State.”

Several Federal agencies have independent authorities to

declare disasters or emergencies. These authorities may

be exercised concurrently with or become part of a

major disaster or emergency declared under the Stafford

Act. Some examples of agencies exercising independent

authorities include the following scenarios:

■ The Secretary of Agriculture may declare a disaster 

in certain situations in which a county sustained 

production loss of 30 percent or greater in a single

major enterprise, authorizing emergency loans for

physical damages and crop loss.

10 | National Response Plan December 2004

Emergency Support Function

A grouping of government and certain private-sector

capabilities into an organizational structure to provide

support, resources, and services.
■ The Administrator of the Small Business

Administration may make a disaster declaration based

on physical damage to buildings, machinery,

equipment, inventory, homes, and other property as

well as economic injury.

■ The Secretary of Commerce may make a declaration of a

commercial fisheries failure or fishery resources disaster.

■ The Secretary of Health and Human Services may

declare a public health emergency.

■ The U.S. Army Corps of Engineers (USACE) Chief of

Engineers may issue a disaster declaration in response

to flooding and coastal storms. USACE is authorized

to undertake emergency operations and activities.

■ A Federal On-Scene Coordinator (OSC), designated

by the Environmental Protection Agency (EPA),

DHS/U.S. Coast Guard (DHS/USCG), DOD, or the

Department of Energy (DOE) under the NCP, has the

authority to direct response efforts at the scene of a

discharge or release of oil, hazardous substance,

pollutants, or contaminants, depending on the

substance and the location and source of release.

The ESF, Support, and Incident Annexes provide further

discussion of the domestic incident management roles and

responsibilities of other Federal departments and agencies.

Emergency Support Functions

The NRP applies a functional approach that groups the

capabilities of Federal departments and agencies and the

American Red Cross into ESFs to provide the planning,

support, resources, program implementation, and

emergency services that are most likely to be needed

during Incidents of National Significance. The Federal

response to actual or potential Incidents of National

Significance is typically provided through the full or

partial activation of the ESF structure as necessary. The

ESFs serve as the coordination mechanism to provide

assistance to State, local, and tribal governments or to

Federal departments and agencies conducting missions of

primary Federal responsibility. ESFs may be selectively

activated for both Stafford Act and non-Stafford Act

incidents where Federal departments or agencies request

DHS assistance or under other circumstances as defined

in HSPD-5. The ESFs provide staffing for the National

Response Coordination Center (NRCC), Regional

Response Coordination Center (RRCC), JFO, and ICP as

required by the situation at hand.

Each ESF is composed of primary and support agencies.

The NRP identifies primary agencies on the basis of

authorities, resources, and capabilities. Support agencies

are assigned based on resources and capabilities in a given

functional area. The resources provided by the ESFs reflect

the resource-typing categories identified in the NIMS. The

scope of each ESF is summarized in Figure 2 on the

following page. ESFs are expected to support one another

in carrying out their respective roles and responsibilities.

Additional discussion on roles and responsibilities of ESF

coordinators, primary agencies, and support agencies can

be found in the introduction to the ESF Annexes.

Note that not all Incidents of National Significance

result in the activation of ESFs. It is possible that an

Incident of National Significance can be adequately

addressed by DHS and other Federal agencies through

activation of certain NRP elements (e.g., Principal

Federal Official (PFO), IIMG) without the activation of

ESFs. Similarly, operational security considerations may

dictate that activation of NRP elements be kept to a

minimum, particularly in the context of certain

terrorism prevention activities.

December 2004 National Response Plan | 11

Nongovernmental and Volunteer Organizations

NGOs collaborate with first responders, governments at

all levels, and other agencies and organizations providing

relief services to sustain life, reduce physical and

emotional distress, and promote recovery of disaster

victims when assistance is not available from other

sources. For example, the American Red Cross is an NGO

that provides relief at the local level and also coordinates

the Mass Care element of ESF #6. Community-based

organizations (CBOs) receive government funding to

provide essential public health services.

The National Voluntary Organizations Active in Disaster

(NVOAD) is a consortium of more than 30 recognized

national organizations of volunteers active in disaster

relief. Such entities provide significant capabilities to

incident management and response efforts at all levels.

For example, the wildlife rescue and rehabilitation

activities conducted during a pollution emergency are

often carried out by private, nonprofit organizations

working with natural resource trustee agencies.
12 | National Response Plan December 2004

ESF #1 - Transportation ■ Federal and civil transportation support ■ Transportation safety ■ Restoration/recovery of transportation infrastructure ■ Movement restrictions ■ Damage and impact assessment

ESF #2 - Communications ■ Coordination with telecommunications industry ■ Restoration/repair of telecommunications infrastructure ■ Protection, restoration, and sustainment of national cyber and information technology resources

ESF #3 - Public Works 

and Engineering

■ Infrastructure protection and emergency repair ■ Infrastructure restoration ■ Engineering services, construction management ■ Critical infrastructure liaison 

ESF #4 - Firefighting ■ Firefighting activities on Federal lands ■ Resource support to rural and urban firefighting operations 

ESF #5 - Emergency Management ■ Coordination of incident management efforts ■ Issuance of mission assignments ■ Resource and human capital ■ Incident action planning ■ Financial management

ESF #6 - Mass Care, Housing,

and Human Services

■ Mass care ■ Disaster housing ■ Human services 

ESF #7 - Resource Support ■ Resource support (facility space, office equipment and supplies, contracting services, etc.)

ESF #8 - Public Health 

and Medical Services

■ Public health ■ Medical ■ Mental health services ■ Mortuary services

ESF #9 - Urban Search 

and Rescue

■ Life-saving assistance ■ Urban search and rescue

ESF #10 - Oil and Hazardous 

Materials Response

■ Oil and hazardous materials (chemical, biological, radiological, etc.) response ■ Environmental safety and short- and long-term cleanup

ESF #11 - Agriculture and 

Natural Resources

■ Nutrition assistance ■ Animal and plant disease/pest response ■ Food safety and security ■ Natural and cultural resources and historic properties protection and restoration

ESF #12 - Energy ■ Energy infrastructure assessment, repair, and restoration ■ Energy industry utilities coordination ■ Energy forecast

ESF #13 - Public Safety and

Security

■ Facility and resource security ■ Security planning and technical and resource assistance ■ Public safety/security support ■ Support to access, traffic, and crowd control

ESF #14 - Long-Term Community

Recovery and Mitigation

■ Social and economic community impact assessment ■ Long-term community recovery assistance to States, local governments, and the private sector ■ Mitigation analysis and program implementation

ESF #15 - External Affairs ■ Emergency public information and protective action guidance ■ Media and community relations ■ Congressional and international affairs ■ Tribal and insular affairs

FIGURE 2. Emergency Support Functions

ESF Scope
December 2004 National Response Plan | 13

Impacted Organization 

or Infrastructure

Private-sector organizations may be affected by direct or indirect consequences of 

the incident, including privately owned critical infrastructure, key resources, and those

main private-sector organizations that are significant to local, regional, and national

economic recovery from the incident. Examples of privately owned infrastructure include

transportation, telecommunications, private utilities, financial institutions, and hospitals.

Response Resource Private-sector organizations provide response resources (donated or compensated) 

during an incident—including specialized teams, equipment, and advanced technologies

—through local public-private emergency plans, mutual aid agreements, or incidentspecific requests from government and private-sector-volunteered initiatives.

Regulated and/or

Responsible Party

Owners/operators of certain regulated facilities or hazardous operations may bear

responsibilities under the law for preparing for and preventing incidents from

occurring, and responding to an incident once it occurs. For example, Federal

regulations require owners/operators of Nuclear Regulatory Commission (NRC)-

regulated nuclear facilities and activities to maintain emergency (incident) preparedness

plans, procedures, and facilities and to perform assessments, prompt notifications, and

training for a response to an incident.

State/Local Emergency

Organization Member

Private-sector organizations may serve as an active partner in local and State emergency

preparedness and response organizations and activities.

Type of Organization Role

Responsibilities: Private-sector organizations support

the NRP (voluntarily or to comply with applicable laws

and regulations) by sharing information with the

government, identifying risks, performing vulnerability

assessments, developing emergency response and

business continuity plans, enhancing their overall

readiness, implementing appropriate prevention and

protection programs, and donating or otherwise

providing goods and services through contractual

arrangement or government purchases to assist in

response to and recovery from an incident.

Certain organizations are required by existing law and

regulation to bear the cost of planning and response to

incidents, regardless of cause. In the case of an

Incident of National Significance, these private-sector

organizations are expected to mobilize and employ the

resources necessary and available in accordance with

their plans to address the consequences of incidents at

their own facilities or incidents for which they are

otherwise responsible.

Response Resources: Unless the response role is

inherently governmental (e.g., law enforcement, etc.),

private-sector organizations are encouraged to develop

and maintain capabilities to respond to and manage a

complete spectrum of incidents and emergencies. The

Federal Government maintains ongoing interaction

with the critical infrastructure and key resources

industries to provide coordination for prevention,

preparedness, response, and recovery activities. When

practical, or when required under Federal law, privatePrivate Sector

DHS and NRP primary and support agencies coordinate

with the private sector to effectively share information,

form courses of action, and incorporate available

resources to prevent, prepare for, respond to, and

recover from Incidents of National Significance.

Further, the Secretary of Homeland Security utilizes a

private-sector advisory group with broad

representation to provide advice on incident

management and emergency response issues impacting

their stakeholders.

Roles: The roles, responsibilities, and participation of

the private sector during Incidents of National

Significance vary based on the nature of the organization

and the type and impact of the incident. The roles of

private-sector organizations are summarized below.
Citizen Involvement

Strong partnerships with citizen groups and organizations

provide support for incident management prevention,

preparedness, response, recovery, and mitigation.

The U.S. Citizen Corps brings these groups together

and focuses efforts of individuals through education,

training, and volunteer service to help make

communities safer, stronger, and better prepared to

address the threats of terrorism, crime, public health

issues, and disasters of all kinds.

Local Citizen Corps Councils implement Citizen Corps

programs, which include Community Emergency

Response Teams (CERTs), Medical Reserve Corps,

Neighborhood Watch,Volunteers in Police Service, and

the affiliate programs; provide opportunities for special

skills and interests; develop targeted outreach for

special-needs groups; and organize special projects and

community events.

Citizen Corps Affiliate Programs expand the resources

and materials available to States and local communities

through partnerships with programs and organizations

that offer resources for public education, outreach, and

training; represent volunteers interested in helping to

make their communities safer; or offer volunteer

service opportunities to support first responders,

disaster relief activities, and community safety efforts.

Other programs unaffiliated with Citizen Corps also

provide organized citizen involvement opportunities in

support of Federal response to major disasters and

events of national significance. One example is the

National Animal Health Emergency Response Corps

(NAHERC), which helps protect public health by

providing a ready reserve of private and State animal

health technicians and veterinarians to combat threats

to U.S. livestock and poultry in the event of a large

outbreak of a foreign animal disease.

sector representatives should be included in planning

and exercises. The government may, in some cases,

direct private-sector response resources when they have

contractual relationships, using government funds.

Through the Defense Production Act of 1950, 64 Stat.

798 (1950), as amended, and the Homeland Security

Act, DHS has the authority to redirect production and

distribution of certain response and incident

management resources.

Functional Coordination: The primary agency(ies) 

for each ESF maintains working relations with its

associated private-sector counterparts through

partnership committees or other means (e.g., ESF #2,

Communications – telecommunications industry; ESF

#10, Oil and Hazardous Materials Response – oil and

hazardous materials industries; etc.).

14 | National Response Plan December 2004

Citizen Corps

The Citizen Corps works through a national network of

State, local, and tribal Citizen Corps Councils, which

bring together leaders from law enforcement, fire,

emergency medical and other emergency management,

volunteer organizations, local elected officials, the

private sector, and other community stakeholders.
The President leads the Nation in responding effectively

and ensuring the necessary resources are applied quickly

and efficiently to all Incidents of National Significance.

As necessary, the Assistant to the President for Homeland

Security convenes interagency meetings to coordinate

policy issues. Though White House-level coordination

mechanisms are not described in detail in the NRP, all

other Federal coordinating mechanisms and entities

described in the NRP support, and are consistent with,

White House-level interagency coordination.

During actual or potential Incidents of National

Significance, the overall coordination of Federal incident

management activities is executed through the Secretary

of Homeland Security. Other Federal departments and

agencies carry out their incident management and

emergency response authorities and responsibilities

within this overarching coordinating framework.

The Secretary of Homeland Security utilizes multiagency

structures at the headquarters, regional, and field levels

to coordinate efforts and provide appropriate support to

the incident command structure. At the Federal

headquarters level, incident information-sharing,

operational planning, and deployment of Federal

resources are coordinated by the Homeland Security

Operations Center (HSOC), and its component element,

the NRCC.

Strategic-level interagency incident management

coordination and course of action development are

facilitated by the IIMG, which also serves as an advisory

body to the Secretary of Homeland Security. Issues

beyond the Secretary's authority to resolve are referred

to the appropriate White House entity for resolution.

This section describes the Federal coordinating

structures, processes, and protocols employed to

manage Incidents of National Significance. These

coordinating structures and processes are designed to

enable execution of the responsibilities of the President

through the appropriate Federal departments and

agencies, and to integrate Federal, State, local, tribal,

NGO, and private-sector efforts into a comprehensive

national approach to domestic incident management.

A basic premise of the NRP is that incidents are

generally handled at the lowest jurisdictional level

possible. Police, fire, public health and medical,

emergency management, and other personnel are

responsible for incident management at the local level.

In some instances, a Federal agency in the local area

may act as a first responder and may provide direction

or assistance consistent with its specific statutory

authorities and responsibilities. In the vast majority of

incidents, State and local resources and interstate mutual

aid normally provide the first line of emergency

response and incident management support.

When an incident or potential incident is of such

severity, magnitude, and/or complexity that it is

considered an Incident of National Significance

according to the criteria established in this plan, the

Secretary of Homeland Security, in coordination with

other Federal departments and agencies, initiates

actions to prevent, prepare for, respond to, and recover

from the incident. These actions are taken in

conjunction with State, local, tribal, nongovernmental,

and private-sector entities as appropriate to the threat

or incident. In the context of Stafford Act disasters or

emergencies, DHS coordinates supplemental Federal

assistance when the consequences of the incident

exceed State, local, or tribal capabilities.

IV. Concept of Operations

General

December 2004 National Response Plan | 15

A basic premise of the NRP is that incidents are

generally handled at the lowest jurisdictional level

possible.

In an Incident of National Significance, the Secretary

of Homeland Security, in coordination with other

Federal departments and agencies, initiates actions

to prevent, prepare for, respond to, and recover from

the incident. These actions are taken in conjunction

with State, local, tribal, nongovernmental, and

private-sector entities.

Overall Coordination of Federal Incident Management Activities
Concurrent Implementation of Other Plans

At the regional level, interagency resource coordination

and multiagency incident support are provided by the

RRCC. In the field, the Secretary of Homeland Security

is represented by the PFO (and/or the Federal

Coordinating Officer (FCO)/Federal Resource

Coordinator (FRC) as appropriate). Overall Federal

support to the incident command structure on-scene is

coordinated through the JFO.

For terrorist incidents, the primary responsibilities for

coordinating and conducting all Federal law enforcement

and criminal investigation activities are executed by the

Attorney General acting through the FBI. During a

terrorist incident, the local FBI Special Agent-in-Charge

(SAC) coordinates these activities with other members of

the law enforcement community, and works in

conjunction with the PFO, who coordinates overall

Federal incident management activities. Notwithstanding

any other provision of the NRP, when a terrorist threat or

actual incident falls within the criminal jurisdiction of the

United States, any incident management activity by any

other Federal department or agency that could adversely

affect the Attorney General’s ability to prevent, preempt,

disrupt, and respond to such a threat or incident must be

coordinated with the Attorney General through the SFLEO

(i.e., the FBI SAC).

The framework created by these coordinating structures

is designed to accommodate the various roles the

Federal Government plays during an incident, whether

it is Federal support to (and in coordination with) State,

local, or tribal authorities; Federal-to-Federal support; or

direct implementation of Federal incident management

authorities and responsibilities when appropriate under

Federal law. This structure also encompasses the dual

roles and responsibilities of the Secretary of Homeland

Security for operational and resource coordination in

the context of domestic incident management.

16 | National Response Plan December 2004

The RRCC coordinates regional response efforts,

establishes Federal priorities, and implements local

Federal program support until a JFO is established.

The JFO is a temporary Federal facility established

locally to coordinate operational Federal assistance

activities to the affected jurisdiction(s) during

Incidents of National Significance.

The NRP is the core plan for managing domestic

incidents and details the Federal coordinating structures

and processes used during Incidents of National

Significance. Other supplemental agency and

interagency plans provide details on authorities,

response protocols, and technical guidance for

responding to and managing specific contingency

situations (such as hazardous materials spills, wildland

fires, etc.).

In many cases, Federal agencies manage localized

incidents under these plans using their own authorities

without the need for coordination by the Secretary of

Homeland Security. In the context of Incidents of

National Significance, these supplemental agency or

interagency plans may be implemented concurrently

with the NRP, but are subordinated to the overarching

core coordinating structures, processes, and protocols

detailed in the NRP. In this case, the department or

agency with primary responsibility for execution of the

supplemental agency or interagency plan is also

responsible for ensuring that all ongoing activities

conform to the processes and protocols prescribed in

the NRP. This helps enable effective and coordinated

Federal incident management operations, consistent

with individual department and agency authorities and

responsibilities. Similarly, this same principle applies to

the implementation of security plans developed to

support special security events, particularly NSSEs. A

comprehensive listing and summary of representative

national agency and interagency plans is included in

Appendix 4.
Organizational Structure

The national structure for incident management establishes

a clear progression of coordination and communication

from the local level to regional to national headquarters

level. This structure is diagramed in Figure 3 on page 19.

As illustrated in Figure 3, the local incident command

structures (namely the ICP(s) and Area Command) are

responsible for directing on-scene emergency

management and maintaining command and control of

on-scene incident operations.

The support and coordination components consist of multiagency coordination centers/emergency operations

centers (EOCs) and multiagency coordination entities. Multiagency coordination centers/EOCs provide central

locations for operational information-sharing and resource coordination in support of on-scene efforts.

Multiagency coordination entities aid in establishing

priorities among the incidents and associated resource

allocations, resolving agency policy conflicts, and

providing strategic guidance to support incident

management activities.

Figure 3. Excerpt

Multiagency

Coordination

Entities

December 2004 National Response Plan | 17

Figure 3. Excerpt

Incident Command Local Emergency

Ops Center

Incident 

Command Post

Incident 

Command Post

Area

Command 

Interagency

Incident

Management 

Group

JFO 

Coordination

Group

Figure 3. Excerpt 

EOCs/Multiagency 

Coordination 

Centers

Homeland

Security

Operations

Center

Regional 

Response

Coordination 

Center

Joint Field 

Office

State 

Emergency Ops

Center

Local 

Emergency Ops

Center

Incident 

Command Post

In accordance with NIMS processes, resource and policy

issues are addressed at the lowest organizational level

practicable. If the issues cannot be resolved at that level,

they are forwarded up to the next level for resolution.

Reflecting the NIMS construct, the NRP includes the

following command and coordination structures:

■ ICPs on-scene using the Incident Command System

(ICS)/Unified Command;

■ Area Command (if needed);

■ State, local, tribal, and private-sector EOCs;

■ JFO, which is responsible for coordinating Federal

assistance and supporting incident management

activities locally;

■ RRCC and HSOC, which serve as regional and

national-level multiagency situational awareness and

operational coordination centers;

■ IIMG, which serves as the national headquarters-level

multiagency coordination entity for domestic

incident management; and

■ HSC and other White House organizations, which

serve as the national-level multiagency coordination

entities to advise and assist the President on

homeland security and other policy issues.

The NRP organizational structure addresses both sitespecific incident management activities and the broader

regional or national issues related to the incident, such

as impacts to the rest of the country, immediate

regional or national actions required to avert or prepare

for potential subsequent events, and the management

of multiple threats or incidents (particularly those that

are non-site specific, geographically dispersed, or

evolve over a long period of time).
The role of regional coordinating structures varies

depending on the situation. Many incidents may be

coordinated by regional structures primarily using

regional assets. Larger, more complex incidents may

require direct coordination between the JFO and

national level, with regional structures continuing to

play a supporting role.

Variations of the basic structure are diagramed in the

following figures:

■ Figure 4 reflects modifications for terrorist incidents

and the role of the DOJ working through the FBI’s

Strategic Information and Operations Center (SIOC)

and the Joint Operations Center (JOC).

■ Figure 5 depicts the coordination structure for

Federal-to-Federal support when DHS is coordinating

resources to support another Federal agency in nonStafford Act situations.

Additional information about each component of these

organizational structures is presented following the

figures.

18 | National Response Plan December 2004
December 2004 National Response Plan | 19 EOCs/Multiagency Coordination Centers

■ Support and coordination■ Identifying resource shortages 

and issues

■ Gathering and providing information■ Implementing multiagency 

coordination entity decisions

Incident Command■ Directing on-scene 

emergency management

Homeland

Security

Operations

Center

The focal point for coordination of Federalsupport is the Joint Field Office. As appropriate, the JFO maintains connectivity withFederal elements in the ICP in support ofState, local, and tribal efforts.

An Area Command is established whenthe complexity of the incident and incident management span-of-controlconsiderations so dictate.

The role of regionalcoordinating structuresvaries depending on thesituation. Many incidentsmay be coordinated byregional structures usingregional assets. Larger,more complex incidents mayrequire direct coordinationbetween the JFO andnational level, with regionalcomponents continuing toplay a supporting role.

Regional 

Response

Coordination 

Center

Joint Field 

Office

Interagency

Incident

Management 

Group

JFO Coordination

Group

State Emergency

Ops Center

Local Emergency

Ops Center

Incident 

Command Post

Incident 

Command Post

Incident 

Command Post

Area

Command 

Multiagency Coordination Entity■ Strategic coordination■ Prioritization between incidents and

associated resource allocation

■ Focal point for issue resolution

Coordination Structures Command Structures

NIMS FrameworkThe structure for NRP coordination is based on the NIMS construct:ICS/Unified Command on-scene supported by an Area Command (if needed),multiagency coordination centers, and multiagency coordination entities.

Field Level Regional Level National Level

FIGURE 3. Structure for NRP coordination
20 | National Response Plan December 2004 EOCs/Multiagency Coordination Centers

■ Support and coordination■ Identifying resource shortages 

and issues

■ Gathering and providing information■ Implementing multiagency 

coordination entity decisions

Incident Command■ Directing on-scene 

emergency management

(Area Command option not depicted)

Homeland

Security

Operations

Center

Regional 

Response

Coordination 

Center

Joint Field 

Office

* Strategic

Information &

Operations

Center

* Joint

Operations 

Center

Interagency

Incident

Management 

Group

JFO Coordination

Group

State Emergency

Ops Center

Local Emergency

Ops Center

Incident 

Command Post

Multiagency Coordination Entity■ Strategic coordination■ Prioritization between incidents and

associated resource allocation

■ Focal point for issue resolution

Command Structures Coordination Structures

NIMS Framework Field Level Regional Level National Level

FIGURE 4. Structure for NRP coordination: Terrorist incident

*At the field level, the FBI Joint Operations Center coordinates all criminal

investigation and law enforcement-related activities. When the JFO isestablished, the JOC becomes a component of the JFO. At theheadquarters level, the FBI Strategic Information and Operations Centercoordinates criminal investigation and law enforcement-related activitiesand works in coordination with the HSOC and IIMG. The SIOC functions asboth a multiagency coordination center and multiagency coordination entityas defined in the NIMS.
December 2004 National Response Plan | 21 EOCs/Multiagency Coordination Centers

■ Support and coordination■ Identifying resource shortages 

and issues

■ Gathering and providing information■ Implementing multiagency 

coordination entity decisions

Incident Command■ Directing on-scene 

emergency management

(Area Command option not depicted)

Homeland

Security

Operations

Center

Regional 

Response

Coordination 

Center

Joint Field 

Office

Federal

Dept/Agency 

Emergency Ops

Center

Regional Federal

Dept/Agency 

Emergency Ops

Center

Interagency

Incident

Management 

Group

JFO Coordination

Group

State Emergency

Ops Center

Local Emergency

Ops Center

Incident 

Command Post

Multiagency Coordination Entity■ Strategic coordination■ Prioritization between incidents and

associated resource allocation

■ Focal point for issue resolution

Coordination Structures Command Structures

NIMS Framework Field Level Regional Level National LevelFIGURE 5. Structure for NRP coordination: Federal-to-Federal support

During a Federal-to-Federal support situation, theJFO provides support to the federally establishedICP (or Area Command if established).
This section discusses the major organizational

elements in the structure for Federal NRP coordination

diagramed in Figures 3 through 5. Included in the

discussion are special teams and other associated

components, to include White House-level entities.

Homeland Security Council/National

Security Council

As stated in HSPD-5, the Assistant to the President for

Homeland Security and the Assistant to the President

for National Security Affairs are responsible for

interagency policy coordination regarding domestic

and international incident management, respectively, as

directed by the President. Following an initial

assessment by the Secretary of Homeland Security,

interagency policy issues and courses of action framed

by the IIMG, particularly those of a time-sensitive

nature, those that require policy adjudication, or those

outside the authorities of the Secretary, as defined in

the Homeland Security Act, Stafford Act, and other

relevant statutes, Executive orders, and directives, are

elevated for resolution through the HSC/NSC system.

The Assistant to the President for Homeland Security

and the Assistant to the President for National Security

Affairs work together to ensure that domestic and

international incident management efforts are

seamlessly united.

Policy Coordination Committees (PCCs)

PCCs coordinate policy issues as part of the White

House process. PCCs may be convened at the request

of any member agency on an emergency basis based on

a threat, an Incident of National Significance, or a

policy issue of an urgent nature.

Interagency Incident Management Group

The IIMG is a Federal headquarters-level multiagency

coordination entity that facilitates strategic Federal

domestic incident management for Incidents of

National Significance. The Secretary of Homeland

Security activates the IIMG based on the nature,

severity, magnitude, and complexity of the threat or

incident. The Secretary of Homeland Security may

activate the IIMG for high-profile, large-scale events

that present high-probability targets, such as NSSEs,

and in heightened threat situations. The IIMG is

comprised of senior representatives from DHS

components, other Federal departments and agencies,

and NGOs, as required. (For incident-specific

activities, the IIMG replaces the Catastrophic Disaster

Response Group that served as the policy-level

multiagency coordination entity under the FRP.)

The IIMG membership is flexible and can be tailored or

task-organized to provide the appropriate subjectmatter expertise required for the specific threat or

incident at hand. When activated, the IIMG:

■ Serves as a focal point for Federal strategic incident

management planning and coordination;

■ Maintains situational awareness of threat assessments

and ongoing incident-related operations and

activities;

■ Provides decisionmaking support for threat or

incident-related prevention, preparedness, response,

and recovery efforts;

■ Synthesizes information, frames issues, and makes

recommendations to the Secretary of Homeland

Security on:

■ Actions to take in response to credible threats,

■ Changes in the national HSAS alert level,

■ Policy issues,

■ Operational courses of action, and

■ Priorities for the use or allocation of Federal

resources;

■ Provides strategic coordination and recommendations

for the application of Federal resources in

cooperation with existing agency and interagency

resource management and private-sector entities;

■ Assesses national impacts of the incident(s) as well as

those associated with the actual or proposed Federal

response;

■ Anticipates evolving Federal resource and operational

requirements according to the specifics of the

situation;

■ Maintains ongoing coordination with the PFO and

the JFO Coordination Group;

■ Coordinates with the FBI SIOC on terrorism-related

issues;

Principal NRP Organizational Elements

22 | National Response Plan December 2004
■ Facilitates interagency operational coordination and

coordination with other public and private entities

required for implementation of decisions and

directions from the President or other appropriate

White House entities; and

■ Develops strategies for implementing existing

policies and provides incident information to DHS

and the White House to facilitate policymaking. The

White House originates any new policies pertaining

to a major incident and resolves interagency policy

disputes.

IIMG Director, Deputy, or Designee

The IIMG coordinates with and provides information 

to the White House including, but not limited to:

situational awareness and operational prevention,

protection, preparedness, response, and recovery

activities, as well as policy course of action

recommendations. The IIMG Director, deputy, or

designee, in support of the Secretary of Homeland

Security, may participate in White House organization

meetings. Policy decisions made through the HSC/NSC

system are referred to the IIMG and the appropriate

departments and agencies for implementation.

The IIMG monitors policy and operational courses of

action implemented by individual departments and

agencies, monitors progress, and reports status back

through the DHS representative on a timely basis.

IIMG Staffing

As indicated below, the IIMG consists of an Executive

Staff, Core Group, and Subject-Matter Expert

Augmentation.

IIMG Executive Staff

The Executive Staff includes a Director, Deputy Director,

Operations Deputy, Information Analyst, Information

Requirements Manager, Recorder, Situation Briefer,

Resource Tracker, and Administrative Assistant. The

Secretary of Homeland Security will designate a senior

department representative to serve as the IIMG Director.

IIMG Core Group

The IIMG Core Group includes representatives from

Federal departments and agencies, DHS components,

and other organizations as required. Affected States may

be represented on the IIMG either through the DHS

Office of State and Local Government Coordination and

Preparedness (OSLGCP) or, if needed, through a State

liaison to the IIMG. At the time of activation of the

IIMG, actual IIMG membership and participation is

tailored to include departments and agencies with the

appropriate jurisdictional authority and expertise for the

incident at hand, including the following scenarios:

chemical, biological, radiological, or nuclear event; nonWMD terrorist event; cyber event; oil/hazardous

materials spill; natural disaster; mass migration event;

and other emergencies as required.

IIMG Core Group Staffing

■ Department of Agriculture

■ Department of Commerce

■ Department of Defense

■ Department of Energy

■ Department of Health and Human Services

■ Department of Homeland Security

■ Border and Transportation Security

■ Citizenship and Immigration Services

■ Congressional Liaison

■ Customs and Border Protection

■ Emergency Preparedness and Response/Federal

Emergency Management Agency

■ Immigration and Customs Enforcement

■ Information Analysis and Infrastructure Protection

■ International Affairs Office

■ Legislative Affairs

■ Office of General Counsel

■ Office of National Capital Region Coordination

■ Office of State and Local Government Coordination

and Preparedness

■ Public Affairs

■ Science and Technology

■ Special Assistant to the Secretary for the Private Sector

■ Transportation Security Administration

■ U.S. Coast Guard

■ U.S. Secret Service ■ Department of Housing and Urban Development

■ Department of the Interior

■ Department of Justice

■ Bureau of Alcohol,Tobacco, Firearms and

Explosives

■ Drug Enforcement Agency

■ Federal Bureau of Investigation

■ U.S. Marshals Service

December 2004 National Response Plan | 23
■ Department of Labor

■ Department of State

■ Department of Transportation

■ Department of the Treasury

■ Department of Veterans Affairs

■ Central Intelligence Agency

■ Environmental Protection Agency

■ General Services Administration

■ National Aeronautics and Space Administration

■ Nuclear Regulatory Commission

■ Office of Personnel Management

■ Small Business Administration

■ U.S. Postal Service

■ White House Office of Science and Technology Policy

■ American Red Cross 

Subject-Matter Expert Augmentation

In addition to the Executive Staff and Core Group, the

IIMG integrates immediately available and on-call

operational subject-matter expertise and reach-back

capability to meet the demands of the particular

incident. For some responses, pre-established subjectmatter expert groups are part of ESF, Support, or Incident

Annex planning efforts, and provide appropriate

technical advice. For example, for incidents involving

hazardous materials, the National Response Team (NRT)

can provide assistance to the IIMG. (See the Science and

Technology Support Annex for additional information.)

IIMG Procedures

Procedures governing the designation, activation, recall,

assembly, and operational interaction of IIMG members

will be developed in concert with other Federal

departments and agencies and published by the

Secretary of Homeland Security in a separate document.

Homeland Security Operations Center

The HSOC is the primary national hub for domestic

incident management operational coordination and

situational awareness. The HSOC is a standing 24/7

interagency organization fusing law enforcement,

national intelligence, emergency response, and privatesector reporting. The HSOC facilitates homeland

security information-sharing and operational

coordination with other Federal, State, local, tribal, and

nongovernmental EOCs.

HSOC roles and responsibilities include:

■ Establishing and maintaining real-time

communications links to other Federal EOCs at the

national level, as well as appropriate State, tribal,

local, regional, and nongovernmental EOCs and

relevant elements of the private sector;

■ Maintaining communications with private-sector

critical infrastructure and key resources informationsharing entities;

■ Maintaining communications with Federal incident

management officials;

■ Coordinating resources pertaining to domestic

incident management, and the protection against and

prevention of terrorists attacks;

■ Coordinating with the Terrorist Screening Center

(TSC), FBI SIOC, National Counterterrorism Center

(NCTC), and other Federal Government entities for

terrorism-related threat analysis and incident

response, consistent with applicable Executive orders;

■ Providing general domestic situational awareness,

common operational picture, and support to and

acting upon requests for information from the IIMG

and DHS leadership; and

■ Acting as the primary conduit for the White House

Situation Room and IIMG for domestic situational

awareness.

The HSOC consists of a 24/7 multiagency watch and

operational coordination center and integrated elements

of DHS Information Analysis and Infrastructure

Protection/Office of the Assistant Secretary for

Information Analysis (DHS/IAIP/OIA) and DHS

Emergency Preparedness and Response/Federal

Emergency Management Agency (DHS/EPR/FEMA).

These elements work in close coordination to address

information/intelligence analysis and response

coordination.

HSOC (DHS Headquarters facility elements)

The HSOC integrates representatives from DHS and

other Federal departments and agencies to support

steady-state threat-monitoring requirements and

situational awareness, as well as operational incident

management coordination. The organizational

structure of the HSOC is designed to integrate a full

spectrum of interagency subject-matter expertise and

reach-back capability to meet the demands of a wide

range of potential incident scenarios.

24 | National Response Plan December 2004
HSOC Representatives

The HSOC includes representatives from:

■ Department of Agriculture*

■ Department of Commerce

■ National Oceanic and Atmospheric Administration ■ Department of Defense

■ Department of Energy

■ Department of Health and Human Services

■ Department of Homeland Security

■ Border and Transportation Security

■ Customs and Border Protection

■ Emergency Preparedness and Response/Federal

Emergency Management Agency

■ Federal Protective Service

■ Immigration and Customs Enforcement

■ Information Analysis and Infrastructure Protection

■ Office of the National Capital Region Coordination

■ Office of State and Local Government Coordination

and Preparedness

■ Public Affairs

■ Science and Technology

■ Transportation Security Administration

■ U.S. Coast Guard

■ U.S. Secret Service

■ Department of the Interior

■ Department of Justice

■ Bureau of Alcohol,Tobacco, Firearms and Explosives

■ Drug Enforcement Agency

■ Federal Bureau of Investigation

■ U.S. Marshals Service

■ Department of Labor*

■ Department of State

■ Department of Transportation*

■ Federal Aviation Administration*

■ Department of Veterans Affairs

■ Central Intelligence Agency

■ Environmental Protection Agency

■ Nuclear Regulatory Commission*

■ Office of Personnel Management

■ U.S. Postal Service

■ American Red Cross*

■ State and local law enforcement

* Staffing from these entities is situation dependent.

This list represents a generic template for steady-state

staffing for DHS Headquarters elements of the HSOC.

At the time of an incident, participation may be

expanded based on the specifics of the situation.

DHS component operations centers establish and

maintain direct connectivity, or capability for

connectivity, with the HSOC on a 24/7 basis and keep

it apprised of all operational activities conducted in

support of incident management requirements.

Nothing in this plan impacts or impedes the ability of

other Federal departments and agencies to establish

their own emergency operations centers and maintain a

direct flow of information to these operations centers

from government or private-sector representatives at

the local incident site.

Intelligence/Information Analysis

In partnership with other elements of the HSOC,

DHS/IAIP/OIA is responsible for interagency intelligence

collection requirements, analysis, production, and

product dissemination for DHS. DHS/IAIP/OIA:

■ Coordinates or disseminates homeland security threat

warnings, advisory bulletins, and other information

pertinent to national incident management to

Federal, State, regional, local, and nongovernmental

EOCs and incident management officials and relevant

elements of the private sector;

■ Coordinates with the TSC, FBI SIOC, NCTC, and other

Federal Government entities for terrorism-related and

homeland security-related threat analysis and warning,

consistent with applicable Executive orders;

■ Provides direct analytical support and coordinated

Request for Information (RFI) processing with the

HSOC in support of the IIMG;

■ Provides the threat/intelligence aspects of situational

awareness and forecasting of follow-on threat

activities/incidents; and

■ Maintains real-time communications links to other

national intelligence organizations.

The FBI develops and disseminates FBI intelligence

bulletins and threat warnings to law enforcement in

coordination with DHS.

Response and Resource Coordination

The NRCC is a multiagency center that provides overall

Federal response coordination for Incidents of National

Significance and emergency management program

implementation. DHS/EPR/FEMA maintains the NRCC

as a functional component of the HSOC in support of

incident management operations.

December 2004 National Response Plan | 25
The NRCC monitors potential or developing Incidents

of National Significance and supports the efforts of

regional and field components. NRCC functions in

support of multiagency planning and coordination of

incident management operations include:

■ Monitoring the preparedness of national-level

emergency response teams and resources;

■ In coordination with RRCCs, initiating mission

assignments or reimbursable agreements to activate

other Federal departments and agencies;

■ Activating and deploying national-level entities such

as the National Disaster Medical System (NDMS),

Urban Search and Rescue Task Forces, Mobile

Emergency Response Support (MERS), and

Emergency Response Team (ERT);

■ Coordinating and sustaining the Federal response to

potential and actual Incidents of National

Significance, including coordinating the use of

Federal remote sensing/disaster assessment support;

■ Providing management of field facilities, supplies,

and equipment;

■ Coordinating operational response and resource

allocation planning with the appropriate Federal

departments and agencies, RRCCs, and the JFO;

■ Tracking and managing Federal resource allocations

(see the Financial Management Support Annex

regarding financial tracking and management during

Federal-to-Federal support situations);

■ Collecting, evaluating, and disseminating information

regarding the incident response and status of

resources; and

■ Drafting and distributing operational warnings and

orders in coordination with other elements of the

HSOC.

In addition, the NRCC resolves Federal resource

support conflicts and other implementation issues

forwarded by the JFO. Those issues that cannot be

resolved by the NRCC are referred to the IIMG.

During an incident, the NRCC operates on a 24/7 basis

or as required in coordination with other elements of

the HSOC. To support incident operations, more than

40 departments and agencies from activated ESF

primary and support agencies provide representatives

to augment the NRCC. Additional interagency

representatives may be requested based on the situation

at hand. DHS/EPR/FEMA provides management and

support staff for functions not filled by ESF personnel.

The DHS/EPR/FEMA Operations Center (FOC)

supports the NRCC with a 24-hour watch and provides

notification to departments and agencies on the

activation (or potential activation) of ESFs.

Critical Infrastructure Protection

The HSOC maintains communications and coordinates

with critical infrastructure and key resources

information-sharing entities through the National

Infrastructure Coordinating Center (NICC). The NICC

monitors the Nation’s critical infrastructure and key

resources on an ongoing basis, and conducts daily

polling of the standing information-sharing entities for

incidents and abnormalities. During an incident, the

NICC provides a coordinating vehicle to share

information across infrastructure and key resources

sectors through appropriate information-sharing entities.

Strategic Information 

and Operations Center

The FBI SIOC is the focal point and operational control

center for all Federal intelligence, law enforcement, and

investigative law enforcement activities related to

domestic terrorist incidents or credible threats,

including leading attribution investigations. The SIOC

serves as an information clearinghouse to help collect,

process, vet, and disseminate information relevant to

law enforcement and criminal investigation efforts in a

timely manner. The SIOC maintains direct connectivity

with the HSOC and IIMG. The SIOC, located at FBI

Headquarters, supports the FBI’s mission in leading

efforts of the law enforcement community to detect,

prevent, preempt, and disrupt terrorist attacks against

the Unites States.

The SIOC houses the National Joint Terrorism Task

Force (NJTTF). The mission of the NJTTF is to enhance

communications, coordination, and cooperation among

Federal, State, local, and tribal agencies representing the

intelligence, law enforcement, defense, diplomatic,

public safety, and homeland security communities by

26 | National Response Plan December 2004

The FBI SIOC is the focal point and operational control

center for all Federal intelligence, law enforcement, and

investigative law enforcement activities related to

domestic terrorist incidents or credible threats,

including leading attribution investigations.
providing a point of fusion for terrorism intelligence

and by supporting Joint Terrorism Task Forces (JTTFs)

throughout the United States.

In situations other than terrorism, the Attorney General

may coordinate Federal law enforcement activities

through another DOJ operations center, as appropriate,

in coordination with the HSOC.

National Counterterrorism Center

The NCTC serves as the primary Federal organization

for analyzing and integrating all intelligence possessed

or acquired by the U.S. Government pertaining to

terrorism and counterterrorism, excepting purely

domestic counterterrorism information. The NCTC

may, consistent with applicable law, receive, retain, and

disseminate information from any Federal, State, or

local government or other source necessary to fulfill its

responsibilities.

The NCTC also conducts strategic operational planning

for counterterrorism activities, integrating all instruments

of national power, including diplomatic, financial,

military, intelligence, homeland security, and law

enforcement activities within and among agencies. It

assigns operational responsibilities to agencies for

counterterrorism activities that are consistent with

applicable law and support strategic plans to counter

terrorism. The NCTC ensures that agencies have access to

and receive intelligence needed to accomplish their

assigned activities. It does not direct the execution of

operations.

In addition, the NCTC serves as the central and shared

knowledge bank on known and suspected terrorists and

international terror groups, as well as their goals,

strategies, capabilities, and networks of contacts and

support. The NCTC ensures that agencies, as appropriate,

have access to and receive all-source intelligence support

needed to execute their counterterrorism plans or

perform independent, alternative analysis.

Emergency Support Functions

The ESF structure provides a modular structure to

energize the precise components that can best address

the requirements of the incident. For example, a largescale natural disaster or massive terrorist event may

require the activation of all ESFs. A localized flood or

tornado might only require activation of a select

number of ESFs. Based on the requirements of the

incident, ESFs provide the interagency staff to support

operations of the NRCC, the RRCC, and the JFO.

Depending on the incident, deployed assets of the ESFs

may also participate in the staffing of the ICP.

Under the NRP, each ESF is structured to provide optimal

support of evolving incident management requirements.

ESFs may be activated for Stafford Act and non-Stafford

Act implementation of the NRP (although some

Incidents of National Significance may not require ESF

activations). ESF funding for non-Stafford Act situations

will be accomplished using NRP Federal-to-Federal

support mechanisms and will vary based on the

incident. ESF activities and involvement vary throughout

an incident from high-visibility, high-intensity activities

during the early response, to program implementation

and management during recovery, to a stage of declining

requirements and deactivation as ESFs or ESF

components complete their missions.

Regional Coordination

Some Incidents of National Significance may be

managed primarily using regional resources, with

headquarters-level monitoring. In large-magnitude,

high-visibility, and/or sensitive situations, the JFO

coordinates directly with the headquarters-level HSOC

and IIMG. In these situations, regional organizational

elements remain in support roles.

The RRCC is a standing facility operated by

DHS/EPR/FEMA that is activated to coordinate regional

response efforts, establish Federal priorities, and

implement local Federal program support until a JFO is

established in the field and/or the PFO, FCO, or FRC can

assume their NRP coordination responsibilities. The

RRCC establishes communications with the affected

State emergency management agency and the NRCC,

coordinates deployment of the Emergency Response

Team–Advance Element (ERT-A) to field locations,

assesses damage information, develops situation reports,

and issues initial mission assignments.

The DHS/EPR/FEMA Regional Director activates the

RRCC based on the level of response required. The

RRCC is led by an RRCC Director and includes

December 2004 National Response Plan | 27
DHS/EPR/FEMA staff and regional ESF representatives.

The RRCC may also include a DOD Regional Emergency

Preparedness Liaison Officer (REPLO) who assists in

coordination of requests for defense support. Financial

management activity at the RRCC is monitored and

reported by the Comptroller. (The RRCC replaces the

Regional Operations Center (ROC) in the FRP.)

Joint Field Office

The JFO is a multiagency coordination center

established locally. It provides a central location for

coordination of Federal, State, local, tribal,

nongovernmental, and private-sector organizations with

primary responsibility for threat response and incident

support. The JFO enables the effective and efficient

coordination of Federal incident-related prevention,

preparedness, response, and recovery actions.

The JFO utilizes the scalable organizational structure of

the NIMS ICS in the context of both pre-incident and

post-incident management activities. The JFO

organization adapts to the magnitude and complexity

of the situation at hand, and incorporates the NIMS

principles regarding span of control and organizational

structure: management, operations, planning, logistics,

and finance/administration. Although the JFO uses an

ICS structure, the JFO does not manage on-scene

operations. Instead, the JFO focuses on providing

support to on-scene efforts and conducting broader

support operations that may extend beyond the

incident site.

As described in the NIMS, the JFO may also incorporate

a sixth element focused on intelligence and

information. This element may be included as a

position in the Coordination Staff, a unit within the

Planning Section, a branch within the Operations

Section, or as a separate General Staff Section. The

placement of the intelligence function is determined by

the JFO Coordination Group based on the role

intelligence plays in the incident and/or the volume of

classified or highly sensitive information. Personnel

from Federal departments and agencies, other

jurisdictional entities, and private-sector and

nongovernmental organizations provide staffing for the

JFO, generally through their respective ESFs.

The JFO fully replaces the DHS/EPR/FEMA Disaster

Field Office (DFO), and accommodates all entities (or

their designated representatives) essential to incident

management, information-sharing, and the delivery of

disaster assistance and other support.

When activated to support an NSSE or other security

coordination function, the DHS/U.S. Secret Service

(USSS) Multiagency Command Center (MACC) and the

FBI JOC are collocated at the JFO when possible. Other

Federal operations centers collocate at the JFO

whenever possible. In the event that collocation is not

practical, Federal agencies are connected virtually to the

JFO and assign liaisons to the JFO to facilitate the

coordination of Federal incident management and

assistance efforts. State, local, tribal, private-sector, and

nongovernmental organizations are encouraged to

assign liaisons to the JFO to facilitate interaction,

communication, and coordination. Law enforcement

activities are managed through the JOC, which

becomes an operational branch of the JFO during

terrorist-related Incidents of National Significance

when required.

Threat situations or incidents that impact multiple

States or localities may require separate JFOs. In these

situations, one of the JFOs may be identified (typically

in the most heavily impacted area) to provide strategic

leadership and coordination for the overall incident

management effort.

Figures 6 through 9 illustrate possible JFO

organizational structures for various types of threat

scenarios and incidents. Figure 6 illustrates the

organization for natural disasters, Figure 7 shows

modifications for terrorism, Figure 8 shows

modifications for incidents involving Federal-to-Federal

support, and Figure 9 depicts the JFO organization for

an NSSE. All or portions of these organizational

structures may be stood up based on the nature and

magnitude of the threat or incident.

28 | National Response Plan December 2004
December 2004 National Response Plan | 29

Federal

Coordinating

Officer

State

Coordinating

Officer

Senior Federal

Officials

FIGURE 6. Sample JFO organization during natural disasters

External Affairs

Office of 

Inspector General

Defense Coordinating

Officer

Time Unit

Procurement Unit

Cost Unit

Compensation/

Claims Unit

Operations Section Planning Section Logistics Section Finance/Admin Section

(Comptroller)

Chief of Staff

Safety Coordinator

Liaison Officer(s) 

Infrastructure Liaison

Others as needed

Principal Federal Official

Note: Depending on the

magnitude of the disaster,

a Principal Federal Official

may not always be designated, in which case the

Federal Coordinating

Officer will provide the

Federal lead.

The State Coordinating

Officer represents 

the State, and in some

instances, the JFO

Coordination Group may

include local and/or tribal

representatives as well

as NGO and privatesector representatives,

as appropriate.

JFO Coordination

Group

JFO Coordination

Staff

JFO Sections

Coordination and

Planning Branch

Resource

Management Branch

Supply Branch

Information 

Services Branch

Situation Unit

Resource Unit

Documentation

Technical 

Specialists

Demobilization Unit

Human 

Services Branch

Emergency 

Services Branch

Infrastructure

Support Branch

Community 

Recovery and

Mitigation Branch
JFO Organization for Terrorist Incidents

For terrorist threats or incidents, the establishment of

the FBI JOC may precede the establishment of the other

components of the JFO in time and may constitute the

initial Federal coordinating presence locally. With the

establishment of a JFO, the JOC is incorporated as a

branch within the Operations Section (as shown in

Figure 7) with appropriate consideration given to the

protection of sensitive law enforcement and

investigative information within this structure.

Utilizing the flexibility of NIMS, this JFO structure aids

in the protection of sensitive information while fully

integrating law enforcement operations with other

incident management activities, as appropriate.

30 | National Response Plan December 2004

FBI Special 

Agent-in-Charge

Federal Coordinating

Officer

State Coordinating 

Officer

Senior Federal 

Officials

FIGURE 7. Sample JFO organization for terrorist incidents

External Affairs

Office of 

Inspector General

Defense Coordinating

Officer

Operations Section Planning Section Logistics Section Finance/Admin Section

(Comptroller)

Chief of Staff

Safety Coordinator

Liaison Officer(s) 

Infrastructure Liaison

Others as needed

Principal Federal Official

The SCO represents 

the State, and in some

instances, the JFO

Coordination Group may

include local and/or tribal

representatives as well

as NGO and privatesector representatives,

as appropriate.

(Branches and sub-units established as needed)

JFO Coordination

Group

JFO Coordination

Staff

JFO Sections

Law Enforcement

Investigative Operations

(JOC) Branch

Domestic Emergency

Support Team

Response and 

Recovery Operations

Branch
JFO Organization for Federal-to-Federal Support

Other situations for which a JFO may be established

include incidents managed by one or more Federal

agencies that request DHS assistance or events that

escalate to Incidents of National Significance, such as

an oil spill escalating to a Spill of National Significance.

Again, the JFO organization is tailored to the incident

(based on NIMS), and includes SFOs from agencies

with relevant authority/jurisdiction as members of the

JFO Coordination Group.

December 2004 National Response Plan | 31

Federal Resource

Coordinator

State/Tribal/Local

Official(s)

Senior Federal

Officials

FIGURE 8. Sample JFO organization for Federal-to-Federal support

External Affairs

Office of 

Inspector General

Defense Coordinating

Officer

Operations Section Planning Section Logistics Section Finance/Admin Section

(Comptroller)

Chief of Staff

Safety Coordinator

Liaison Officer(s) 

Infrastructure Liaison

Others as needed

Principal Federal Official Note: An FRC is present

if ESFs are activated,

and will represent the

DHS Secretary if a PFO

is not assigned.

JFO Coordination

Group

JFO Coordination

Staff

JFO Sections

(Branches and sub-units established as needed)
JFO Organization for National Special Security Events 

PDD-62 formalized and delineated the roles and 

responsibilities of Federal agencies in the development of

security plans for NSSEs. HSPD-7 established the new

process for designating events of national and international significance as NSSEs. Designated by the Secretary

of Homeland Security, these events include summits of

world leaders, meetings of international organizations,

national political party conventions, and major national

or international sporting events, which by virtue of their

political, economic, social, or religious significance may

be targets of terrorism or other criminal activity.

For NSSEs, DHS/USSS has primary responsibility for

security design, planning, and implementation; FBI has

primary responsibility for law enforcement, intelligence,

hostage rescue, counterterrorism, and criminal

investigation; and DHS/EPR/FEMA has primary

responsibility for emergency response and recovery

planning and coordination. These agencies work

together using the principles of Unified Command, with

a pre-designated PFO facilitating interagency incident

management coordination during NSSE planning and

execution. For these situations, the JFO combines the

functions of the DHS/USSS MACC, the FBI JOC, and the

Response and Recovery Operations Branch, as illustrated

in Figure 9.

32 | National Response Plan December 2004

FIGURE 9. Sample JFO organization for National Special Security Events

External Affairs

Office of 

Inspector General

Defense Coordinating

Officer

Operations Section Planning Section Logistics Section Finance/Admin Section

(Comptroller)

Chief of Staff

Safety Coordinator

Liaison Officer(s) 

Infrastructure Liaison

Others as needed

In some instances, the

JFO Coordination Group

may include NGO and/or

private-sector representatives, as appropriate.

(Branches and sub-units established as needed)

JFO Coordination

Group

JFO Coordination

Staff

JFO Sections

Security Operations

Branch (MACC)

Law Enforcement

Investigative Operations

(JOC) Branch

Response and 

Recovery Operations

Branch

Federal

Coordinating

Officer

State

Coordinating

Officer

Senior Federal

Officials

Principal Federal Official
JFO Organization Components

The JFO organization components are described in the

following sections.

JFO Coordination Group

Utilizing the NIMS principle of Unified Command, JFO

activities are directed by a JFO Coordination Group,

which may include the PFO, SFLEO, FCO/FRC, or other

SFOs with primary jurisdictional responsibility or

functional authority for the incident.

The JFO Coordination Group also includes a limited

number of principal State, local, and tribal officials

(such as the SCO), as well as NGO and private-sector

representatives. The JFO Coordination Group functions

as a multiagency coordination entity and works jointly

to establish priorities (single or multiple incidents) and

associated resource allocation, resolve agency policy

issues, and provide strategic guidance to support

Federal incident management activities. Generally, the

PFO, in consultation with the FCO and SFLEO,

determines the composition of the JFO Coordination

Group. The exact composition of the JFO is dependent

on the nature and magnitude of the incident, and

generally includes the personnel described in the

following subsections.

The JFO Coordination Group provides strategic

guidance and resolution of any conflicts in priorities

for allocation of critical Federal resources. If policy

issue resolution cannot be achieved between JFO

Coordination Group members, issues can be raised to

the IIMG or through the appropriate agency chain of

command for consideration by higher authorities.

Unresolved resource issues are forwarded to the NRCC,

then to the IIMG if further deliberation is required.

Principal Federal Official

The PFO is personally designated by the Secretary of

Homeland Security to facilitate Federal support to the

established ICS Unified Command structure and to

coordinate overall Federal incident management and

assistance activities across the spectrum of prevention,

preparedness, response, and recovery. The PFO ensures

that incident management efforts are maximized

through effective and efficient coordination. The PFO

provides a primary point of contact and situational

awareness locally for the Secretary of Homeland

Security. The Secretary is not restricted to DHS officials

when selecting a PFO.

The PFO does not direct or replace the incident

command structure established at the incident, nor

does the PFO have directive authority over the SFLEO,

FCO, or other Federal and State officials. Other Federal

incident management officials retain their authorities as

defined in existing statutes and directives. The PFO

coordinates the activities of the SFLEO, FCO, and other

Federal officials involved in incident management

activities acting under their own authorities. The PFO

also provides a channel for media and public

communications and an interface with appropriate

jurisdictional officials pertaining to the incident. Once

formally designated, PFOs relinquish the conduct of all

normal duties and functions. PFOs may not be “dualhatted” with any other roles or responsibilities that

could detract from their overall incident management

responsibilities.

PFO Responsibilities

The specific roles and responsibilities of the PFO

include the following:

■ Representing the Secretary of Homeland Security as

the lead Federal official;

■ Ensuring overall coordination of Federal domestic

incident management and resource allocation

activities;

■ Ensuring the seamless integration of Federal activities

in support of and in coordination with State, local,

and tribal requirements;

■ Providing strategic guidance to Federal entities;

■ Facilitating interagency conflict resolution as

necessary;

December 2004 National Response Plan | 33

JFO Coordination Group

Federal

Coordinating

Officer

State

Coordinating

Officer

Senior Federal

Officials

Principal Federal Official
■ Serving as a primary, although not exclusive, point of

contact for Federal interface with State, local, and

tribal senior elected/appointed officials, the media,

and the private sector;

■ Providing real-time incident information to the

Secretary of Homeland Security through the HSOC

and the IIMG, as required;

■ Coordinating response resource needs between

multiple incidents as necessary, or as directed by the

Secretary of Homeland Security;

■ Coordinating the overall Federal strategy locally to

ensure consistency of Federal interagency

communications to the public;

■ Ensuring that adequate connectivity is maintained

between the JFO and the HSOC; local, county, State,

and regional EOCs; nongovernmental EOCs; and

relevant elements of the private sector; and

■ Participating in ongoing steady-state preparedness

efforts (as appropriate for PFOs designated in a 

“pre-incident” mode, when a threat can be ascribed

to a particular geographic area).

For an actual incident, the Secretary may designate a

local Federal official as an “initial PFO” until the

primary PFO is in place. The initial PFO is accountable

for the same responsibilities as the PFO. In certain

scenarios, a PFO may be pre-designated by the

Secretary of Homeland Security to facilitate Federal

domestic incident planning and coordination at the

local level outside the context of a specific threat or

incident. A PFO also may be designated in a preincident mode for a specific geographic area based on

threat and other considerations. The PFO may hand off

duties to the FCO or other designated Federal official as

appropriate after an event transitions to long-term

recovery and/or cleanup operations.

The Secretary of Homeland Security announces

designation of the PFO via a message from the HSOC

to other Federal, State, and local emergency operations

centers, as well as through a letter to the

Governor/mayor of the affected jurisdiction(s).

The PFO and a small staff component may deploy with

the Domestic Emergency Support Team (DEST) to

facilitate their timely arrival and enhance initial

situational awareness. The PFO and supporting staff

conform to the deployment timelines and other

guidelines established in DEST procedures including,

but not limited to, those outlined in the MOU between

DHS and the FBI regarding the DEST program.

Nothing in the NRP alters the existing DEST concept of

operation or affects the mission of the DEST to support

the FBI SAC at the scene of a weapons of mass

destruction (WMD) threat or incident.

DHS conducts a formal training program for PFOdesignates. Unless extenuating circumstances dictate

otherwise, all PFO-designates should satisfactorily

complete this training program prior to performing

PFO-related responsibilities.

Federal Coordinating Officer

The FCO manages and coordinates Federal resource

support activities related to Stafford Act disasters and

emergencies. The FCO assists the Unified Command

and/or the Area Command. The FCO works closely

with the PFO, SFLEO, and other SFOs. In Stafford Act

situations where a PFO has not been assigned, the FCO

provides overall coordination for the Federal

components of the JFO and works in partnership with

the SCO to determine and satisfy State and local

assistance requirements.

FCO Responsibilities

Roles and responsibilities of the FCO include the

following:

■ Conducting an initial appraisal of the types of

assistance most urgently needed;

■ Coordinating the timely delivery of Federal assistance

to affected State, local, and tribal governments and

disaster victims;

■ Supporting the PFO, when one is designated;

■ When delegated from the DHS/EPR/FEMA Regional

Director, serving as Disaster Recovery Manager

(DRM) to administer the financial aspects of

assistance authorized under the Stafford Act;

■ Working in partnership with the SCO (appointed by

the Governor to oversee operations for the State) and

the Governor’s Authorized Representative (GAR)

(empowered by the Governor to execute all necessary

documents for Federal assistance on behalf of the

State); and

■ Taking other such action consistent with the

authority delegated to him/her as deemed necessary

to assist local citizens and public officials in promptly

obtaining assistance to which they are entitled.

34 | National Response Plan December 2004
Federal Resource Coordinator

In non-Stafford Act situations when a Federal

department or agency acting under its own authority

has requested the assistance of the Secretary of

Homeland Security to obtain support from other

Federal departments and agencies, DHS designates an

FRC. In these situations, the FRC coordinates support

through interagency agreements and MOUs. Relying

on the same skill set, DHS may select the FRC from the

FCO cadre or other personnel with equivalent

knowledge, skills, and abilities.

The FRC is responsible for coordinating the timely

delivery of resources to the requesting agency.

Senior Federal Law Enforcement Official

The SFLEO is the senior law enforcement official from

the agency with primary jurisdictional responsibility as

directed by statute, Presidential directive, existing

Federal policies, and/or the Attorney General. The

SFLEO directs intelligence/investigative law

enforcement operations related to the incident and

supports the law enforcement component of the

Unified Command on-scene. In the event of a terrorist

incident, this official will normally be the FBI SAC.

State/Local/Tribal Official(s)

The JFO Coordination Group also includes State

representatives such as the SCO, who serves as the State

counterpart to the FCO and manages the State’s

incident management programs and activities, and the

GAR, who represents the Governor of the impacted

State. The JFO Coordination Group may also include

tribal and/or local area representatives with primary

statutory authority for incident management.

Senior Federal Officials

The JFO Coordination Group may also include officials

representing other Federal departments or agencies

with primary statutory responsibility for certain aspects

of incident management. SFOs utilize existing

authorities, expertise, and capabilities to assist in

management of the incident working in coordination

with the PFO, FCO, SFLEO, and other members of the

JFO Coordination Group. When appropriate, the JFO

Coordination Group may also include U.S. attorneys or

other senior officials or their designees from DOJ to

provide expert legal counsel.

Responsible/Regulated Party

If the source of the incident is a privately owned

facility or vessel, the JFO Coordination Group may also

include a representative of the owners/operators of the

facility or vessel.

JFO Coordination Staff

In accordance with NIMS and ICS principles, the JFO

structure normally includes a Coordination Staff. The JFO

Coordination Group determines the extent of staffing

based on the type and magnitude of the incident.

The following paragraphs provide information on typical

staff positions.

Chief of Staff and Support Staff

The JFO Coordination Staff may include a Chief of Staff

and representatives providing specialized assistance,

which may include support in the following areas:

safety, legal counsel, equal rights, security,

infrastructure liaison, and other liaisons.

■ The Safety Coordinator has the following roles:

1) ensure that the Chief of Staff and the PFO receive

coordinated, consistent, accurate, and timely safety

and health information and technical assistance;

December 2004 National Response Plan | 35

JFO Coordination Staff

External Affairs

Office of 

Inspector General

Defense Coordinating

Officer

Chief of Staff

Safety Coordinator

Liaison Officer(s) 

Infrastructure Liaison

Others as needed
2) support the Safety Officer(s) at the ICP(s) by

coordinating worker safety and health resources and

providing technical assistance as necessary; and 

3) ensure the safety of the personnel in the JFO. The

Safety Coordinator may receive technical assistance

from responding safety and health personnel by

implementing the Worker Safety and Health Support

Annex.

■ Legal Affairs serves as the primary legal advisor to

the JFO Coordination Group and may also work with

each section chief to support programmatic,

logistical, and personnel matters as required.

■ The Equal Rights Officer serves to promote a

discrimination-free workplace and equal access to

recovery programs and benefits.

■ The Security Officer is responsible for safeguarding

JFO personnel and JFO facility security. When not

assigned elsewhere, the Security Officer also is

responsible for information security and operational

security, ensuring that sensitive information of all

types (e.g., classified information, sensitive law

enforcement information, proprietary and personal

information, or export-controlled information) is

handled in a way that not only safeguards the

information but also ensures that it gets to those who

need access to it so that they can effectively and

safely conduct their missions.

■ Liaisons serve as the point of contact for assisting

and coordinating activities with various agencies and

groups, and are assigned as needed.

■ The Infrastructure Liaison, designated by 

DHS/IAIP, serves as the principal advisor to the JFO

Coordination Group regarding all national- and

regional-level CI/KR incident-related issues. The

Infrastructure Liaison:

■ Acts as liaison between the national- and regionallevel CI/KR, the private sector, and JFO activities;

■ Coordinates CI/KR and ESF issues between the JFO

Coordination Group and IAIP representatives

located at the IIMG and NRCC;

■ Provides situational awareness concerning the

affected CI/KR and provides periodic updates to

the JFO Coordination Group; and

■ Communicates information to the IAIP

representative at the IIMG, NRCC, and NICC.

External Affairs Officer

The External Affairs Officer provides support to the JFO

leadership in all functions involving communications

with external audiences. External Affairs includes

Public Affairs, Community Relations, Congressional

Affairs, State and Local Coordination,Tribal Affairs, and

International Affairs, when appropriate. Resources for

the various External Affairs Functions are coordinated

through ESF #15. (See the ESF #15 Annex for more

information.)

The External Affairs Officer also is responsible for

overseeing operations of the Federal Joint Information

Center (JIC) established to support the JFO. The

following is a description of the JIC:

■ The JIC is a physical location where public affairs

professionals from organizations involved in incident

management activities work together to provide

critical emergency information, crisis

communications, and public affairs support. The JIC

serves as a focal point for the coordination and

dissemination of information to the public and

media concerning incident prevention, preparedness,

response, recovery, and mitigation. The JIC may be

established at an on-scene location in coordination

with State and local agencies depending on the

requirements of the incident. In most cases, the JIC

is established at, or is virtually connected to, the JFO

and is coordinated by Federal and State lead Public

Information Officers. In most Incidents of National

Significance, the Federal lead will be a DHS Public

Information Officer, who works with other Federal,

State, local, tribal, NGO, and private-sector public

affairs personnel. The JFO JIC works in close

coordination with other JICs to integrate into a Joint

Information System (JIS) providing consistent,

coordinated, and timely information during an

incident. (See the NIMS for more details on the JIS.)

■ The JIC develops, coordinates, and disseminates

unified news releases. News releases are cleared

through the JFO Coordination Group to ensure

36 | National Response Plan December 2004

The JIC serves as a focal point for the coordination

and dissemination of information to the public and

media concerning incident prevention, preparedness,

response, recovery, and mitigation.
consistent messages, avoid release of conflicting

information, and prevent negative impact on

operations. This formal approval process for news

releases ensures protection of law enforcementsensitive information. Agencies may issue their own

news releases related to their policies, procedures,

programs, and capabilities; however, these should be

coordinated with the JIC.

■ The PFO is supported by a dedicated DHS Public

Affairs Director who functions as the Press Secretary,

coordinates media activities, provides strategic

communications guidance to the JIC, and serves as a

designated spokesperson when directed by the PFO

and/or DHS Public Affairs.

■ The following elements should be represented at the

JIC: (1) DHS/EPR/FEMA Public Information Officer

and staff; (2) FBI Public Information Officer and staff

(when activated in support of a terrorist incident);

(3) other Federal agency Public Information Officers,

as required; and (4) State, local, tribal, and NGO

Public Information Officers. (See the ESF #15 Annex

and the Public Affairs Support Annex for additional

information on the JIC, public outreach, and

information dissemination.)

Defense Coordinating Officer

If appointed by DOD, the DCO serves as DOD’s single

point of contact at the JFO. With few exceptions,

requests for DSCA originating at the JFO are

coordinated with and processed through the DCO. The

DCO may have a Defense Coordinating Element (DCE)

consisting of a staff and military liaison officers in

order to facilitate coordination and support to activated

ESFs. Specific responsibilities of the DCO (subject to

modification based on the situation) include processing

requirements for military support, forwarding mission

assignments to the appropriate military organizations

through DOD-designated channels, and assigning

military liaisons, as appropriate, to activated ESFs.

JFO Sections

The JFO is organized into four sections: Operations

Section, Planning Section, Logistics Section, and

Finance/Administration Section (Comptroller).

Operations Section

The Operations Section coordinates operational support to

on-scene incident management efforts. Branches may be

added or deleted as required, depending on the nature of

the incident. The Operations Section also is responsible for

coordination with other Federal command posts that may

be established to support incident management activities.

For terrorist incidents, the Operations Section includes

a Law Enforcement Investigative Branch and a Response

and Recovery Branch. For NSSEs, a third branch, the

Security Operations Branch, may be added to

coordinate protection and security efforts.

In these situations, the Operations Section Chief is

designated by mutual agreement of the JFO

Coordination Group based on the agency with greatest

jurisdictional involvement and statutory authority for

the current incident priorities. The agency providing

the Operations Section Chief may change over time as

incident priorities change. Each of the Operations

Section branches is described below.

■ Law Enforcement Investigative Operations

Branch/Joint Operations Center: The JOC Branch is

established by the SFLEO (e.g., the FBI SAC during

terrorist incidents) to coordinate and direct law

enforcement and criminal investigation activities

related to the incident.

Operations Section Branches

December 2004 National Response Plan | 37

JFO Sections

Operations

Section

Operations

Section

Planning

Section

Logistics

Section

Fin/Admin

Section

Security

Operations

Branch (MACC)

Law

Enforcement

Investigative

Operations

(JOC) Branch

Response and 

Recovery

Operations

Branch
The JOC Branch ensures management and

coordination of Federal, State, local, and tribal

investigative/law enforcement activities. The

emphasis of the JOC is on prevention as well as

intelligence collection, investigation, and prosecution

of a criminal act. This emphasis includes managing

unique tactical issues inherent to a crisis situation

(e.g., a hostage situation or terrorist threat).

When this branch is included as part of the JFO, it is

responsible for coordinating the intelligence and

information function (as described in NIMS), which

includes information and operational security, and the

collection, analysis, and distribution of all incidentrelated intelligence. Accordingly, the Intelligence Unit

within the JOC Branch serves as the interagency

fusion center for all intelligence related to an incident.

All intelligence collected on-scene and through the

investigation is gathered at the Intelligence Unit.

Additionally, intelligence collected throughout the

Intelligence Community that may directly relate to the

incident is sent to the Intelligence Unit after being

assessed and verified at the SIOC. The Intelligence

Unit gathers this intelligence, declassifies it as

necessary, and distributes to members of the JFO as

appropriate. (See the Terrorism Incident Law

Enforcement and Investigation Annex for more

information on JOC functions.)

■ Response and Recovery Operations Branch: The

Response and Recovery Operations Branch

coordinates the request and delivery of Federal

assistance and support from various special teams.

This branch is comprised of four groups: Emergency

Services, Human Services, Infrastructure Support, and

Community Recovery and Mitigation.

■ Security Operations Branch: The Security

Operations Branch coordinates protection and site

security efforts, and incorporates the functions of the

DHS/USSS MACC during NSSEs.

Planning Section

The Planning Section’s function includes the collection,

evaluation, dissemination, and use of information

regarding the threat or incident and the status of Federal

resources. The Planning Section is responsible for

preparing and documenting Federal support actions,

and developing strategic, contingency, long-term, and

other plans related to the threat or incident, as needed.

The Planning Section provides current information to

the JFO Coordination Group to ensure situational

awareness, determine cascading effects, identify

national implications, and determine specific areas of

interest requiring long-term attention. The Planning

Section also provides technical and scientific expertise.

The Planning Section is comprised of the following

units: Situation, Resource, Documentation,Technical

Specialists, and Demobilization. The Planning Section

may also include an Information and Intelligence Unit

(if not assigned elsewhere) and an HSOC representative

who aids in the development of reports for the HSOC

and IIMG.

Logistics Section

This section coordinates logistics support that includes

control and accountability for Federal supplies and

equipment; resource ordering; delivery of equipment,

supplies, and services to the JFO and other field

locations; facility location, setup, space management,

building services, and general facility operations;

transportation coordination and fleet management

services; information and technology systems services;

administrative services such as mail management and

reproduction; and customer assistance. The Logistics

Section may include Coordination and Planning,

Resource Management, Supply, and Information

Services Branches.

Finance/Administration Section (Comptroller)

The Finance/Administration Section is responsible for

the financial management, monitoring, and tracking of

all Federal costs relating to the incident and the

functioning of the JFO while adhering to all Federal

laws, acts, and regulations. The position of the

Financial/Administration Chief will be exclusively held

by a Comptroller who serves as the Senior Financial

Advisor to the team leader (e.g., FCO) and represents

the coordinating agency’s Chief Financial Officer (CFO)

as prescribed by the CFO Act of 1990.

The Financial Management Support Annex provides

guidance to ensure that funds are provided

expeditiously and that financial operations are

conducted in accordance with established law,

regulations, and standards.

38 | National Response Plan December 2004
Other Incident Facilities

State, County, and Local Operations Centers

State, county, and local EOCs represent the physical

location at which the coordination of information and

resources to support incident management activities

normally takes place. EOCs are typically organized by

major functional discipline (fire, law enforcement, medical

services, and so on); by jurisdiction (city, county, region,

and so on); or, more likely, by some combination thereof.

State, county, and local EOCs facilitate the execution of

local, State, and interstate mutual aid agreements to

support on-scene operations. During Incidents of

National Significance, the JFO works in coordination

with the State, county, and local EOCs to support

incident management efforts.

Incident Command Post

The tactical-level, on-scene incident command and management organization is located at the ICP. It is typically

comprised of designated incident management officials

and responders from Federal, State, local, and tribal 

agencies, as well as private-sector and nongovernmental

organizations. When multiple command authorities are

involved, the ICP may be led by a Unified Command,

comprised of officials who have jurisdictional authority

or functional responsibility for the incident under an

appropriate law, ordinance, or agreement. The Unified

Command provides direct, on-scene control of tactical

operations and utilizes a NIMS ICS incident management

team organization, typically including Operations,

Planning, Logistics, and Finance/Administration Sections.

The ICP is usually located at or in the immediate

vicinity of the incident site. The location is selected by

the agency having primary jurisdictional authority for

managing the incident at this level. Generally, there is

one ICP established for each incident. Depending on

the number and location of incidents, there may be

multiple ICPs managed by an Area Command.

Area Command/Unified Area Command

An Area Command is established to oversee the management

of multiple incidents that are each being handled by a separate ICS organization or to oversee the management of a very

large or complex incident that has multiple incident management teams engaged. The 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.

Disaster Recovery Center (DRC)

When established in coordination with State and local

jurisdictions, a DRC is a satellite component of the JFO

and provides a central facility where individuals affected

by a disaster can obtain information on disaster recovery

assistance programs from various Federal, State, local,

tribal, private-sector, and voluntary organizations.

Interim Operating Facility (IOF)

The IOF is a temporary field facility used by a

DHS/EPR/FEMA-led ERT in the early stages of an

incident when the team cannot operate at the State EOC

due to space limitations or other reasons, and the JFO

is not yet established. An IOF is generally located at or

near the State EOC, or near the incident site. The IOF

remains in operation until the JFO is established.

Functions accomplished at the IOF include interaction

with State representatives and key ESF agencies,

collection and assessment of information, and initiation

of assistance programs.

December 2004 National Response Plan | 39

Emergency Response and Support Teams (Field Level)

Various teams are available to deploy during incidents

or potential incidents to assist in incident management,

set up emergency response facilities, or provide

specialized expertise and capabilities. These teams are

trained and certified to the standards published by the

NIMS Integration Center. Teams that may be utilized

during NRP operations are described below.

Deployed PFO Support Staff

The Deployed PFO Support Staff is a small interagency

team of various subject-matter experts that may deploy

or be activated with the PFO to provide initial support

staffing until a JFO is established. This team may

include representatives from various ESFs and typically
functions during the pre-incident phase or during the

initial response to conduct assessments, coordinate

security and information-sharing efforts, facilitate

public affairs activities, and provide technical support.

When the JFO is established, this team is integrated

into the JFO staff.

Emergency Response Team

The ERT is the principal interagency group that staffs

the JFO. The ERT is composed of DHS/EPR/FEMA staff

and ESF personnel. The ERT includes an advance

element, known as the ERT-A, that conducts

assessments and initiates coordination with the State

and initial deployment of Federal resources. Each

DHS/EPR/FEMA region maintains an ERT ready to

deploy in response to threats or incidents. The National

Emergency Response Team (ERT-N) deploys for largescale, high-impact events, or as required.

The ERT provides staffing for the JFO and ensures

Federal resources are available to meet Federal incident

management and State requirements identified by the

SCO. The size and composition of the ERT is scalable

depending on the scope and magnitude of the event.

Typically, the ERT organizational structure encompasses

the JFO Coordination Group, JFO Coordination Staff,

and the four JFO sections (Operations, Planning,

Logistics, and Finance/Administration).

The ERT-A deploys during the early stages of an

incident. It is headed by a team leader from

DHS/EPR/FEMA and is composed of program and

support staff and representatives from selected ESF

primary agencies. A part of the ERT-A deploys to the

State EOC or to other locations to work directly with

the State to obtain information on the impact of the

event and to identify specific State requests for Federal

incident management assistance. Other elements of the

ERT-A (including MERS personnel and equipment)

deploy directly to or near the affected area to establish

field communications, locate and establish field

facilities, and set up support activities.

The ERT-A consults and coordinates with State, local,

and/or tribal entities to determine the location of the

JFO and mobilization center(s). The ERT-A identifies or

validates the suitability of candidate sites for the

location of mobilization center(s) and the JFO. The

ERT-A conducts initial on-the-ground situational

awareness analysis to include changes in topography

caused by the incident, impacts to the physical and

social environment, and documentation of losses

avoided based on previous mitigation measures to serve

as a backdrop to the Federal support strategies.

An ERT-N may pre-deploy based on threat conditions.

The Secretary of Homeland Security determines the

need for ERT-N deployment, coordinating the plans

with the affected region and other Federal agencies.

The ERT-N includes staff from DHS/EPR/FEMA

Headquarters and regional offices as well as other

Federal agencies. (Three ERT-N teams are structured,

with one team on call every third month. A fourth

standing team is on call year-round exclusively to

manage incidents in the National Capital Region (NCR).)

40 | National Response Plan December 2004

The ERT is the principal interagency group that

staffs the JFO.

The ERT-A deploys during the early stages of an

incident to work directly with the State to obtain

information on the impact of the event and to

identify specific State requests for Federal incident

management assistance.

The ERT-N deploys for large-scale, high-impact

events, or as required.
DOD provides DSCA in response to requests for

assistance during domestic incidents to include terrorist

attacks, major disasters, and other emergencies. DSCA

refers to DOD support provided by Federal military

forces, DOD civilians and contract personnel, and DOD

agencies and components, in response to requests for

assistance. Continuous coordination with Federal, State,

local, and tribal elements before, during, and after an

event is essential for efficient and effective utilization of

DOD’s DSCA efforts. In most instances, DOD provides DSCA in response to

requests for assistance from a lead or primary agency.

However, support provided under Immediate Response

Federal Incident Response Support Team

(FIRST)

The FIRST is designed to be a quick and readily

deployable resource to support the Federal response to

Incidents of National Significance. The FIRST deploys

within 2 hours of notification, to be on-scene within

12 hours of notification. DHS/EPR/FEMA maintains

and deploys the FIRST.

The FIRST is a forward component of the ERT-A that

provides on-scene support to the local Incident

Command or Area Command structure in order to

facilitate an integrated interjurisdictional response.

After linking up with local and State officials, the team

assesses the situation and identifies the potential

requirements for Federal support, provides protective

action recommendations, identifies critical unmet

needs, and coordinates response activities with other

Federal responders. They also oversee on-scene Federal

assistance, which could include critical life-saving and

life-sustaining items.

The FIRST is not intended to supplant existing response

teams, but to bring a near-time immediate Federal

presence to the scene of an Incident of National

Significance. The FIRST is robust enough to represent a

“value-added” resource in the earliest phase of a

response operation. Upon the subsequent deployment

of an ERT, the FIRST integrates into the Operations

Section of the JFO.

Other Federal Teams

In addition, there are numerous special teams available

to support incident management and disaster response

and recovery operations. Examples include:

■ Damage assessment teams

■ Nuclear Incident Response Team (NIRT)

■ Disaster Medical Assistance Teams (DMATs)

■ HHS Secretary’s Emergency Response Team

■ DOL/OSHA’s Specialized Response Teams

■ Veterinarian Medical Assistance Teams (VMATs)

■ Disaster Mortuary Operational Response Teams

(DMORTs)

■ National Medical Response Teams (NMRTs)

■ Scientific and Technical Advisory and Response Teams

(STARTs)

■ Donations Coordination Teams

■ Urban Search and Rescue (US&R) task forces

■ US&R Incident Support Teams

■ Federal Type 1 and Type 2 Incident Management

Teams (IMTs)

■ Domestic Emergency Support Team (DEST)

■ Domestic Animal and Wildlife Emergency Response

Teams and mitigation assessment teams

Many of these additional teams and capabilities are

discussed in the annexes. Other supporting documents

provide additional listing of teams and their

capabilities, such as DHS/EPR/FEMA’s Emergency

Teams Handbook and the DHS/USCG Hazardous

Materials Response Special Teams Handbook.

December 2004 National Response Plan | 41

DSCA refers to DOD support provided by Federal

military forces, DOD civilians and contract personnel,

and DOD agencies and components, in response to

requests for assistance during domestic incidents to

include terrorist threats or attacks, major disasters,

and other emergencies.

The FIRST is a forward component of the ERT-A that

provides on-scene support to the local Incident

Command or Area Command structure.

Defense Support of Civil Authorities
Authority (described below) is authorized by DOD

directive and prior approval of the Secretary of Defense.

DSCA normally is provided when local, State, and

Federal resources are overwhelmed, provided that it

does not interfere with the Department’s military

readiness or operations. DOD typically provides DSCA

on a reimbursable basis as authorized by law.

Requesting Defense Support of 

Civil Authorities

Initial requests for assistance are made to the Office of the

Secretary of Defense, Executive Secretariat. If approved by

the Secretary of Defense, DOD designates a supported

combatant commander for the response. The supported

combatant commander determines the appropriate level

of command and control for each response and usually

directs a senior military officer to deploy to the incident

site. Under most circumstances, the senior military

officer at the incident site is the DCO. The DCO serves as

DOD’s single point of contact in the JFO.

Requests for DSCA originating at the JFO will be

coordinated and processed through the DCO with the

exception of requests for USACE support, National

Guard forces operating in State Active Duty or Title 32

status (i.e., not in Federal service), or, in some

circumstances, DOD forces in support of the FBI. These

exceptions are detailed later in this section. Specific

responsibilities of the DCO are subject to modification

by the supported combatant commander based on the

situation. In general, the DCO will:

■ Collocate with the PFO/FCO/FRC/SFLEO in the JFO;

■ Coordinate and process applicable requests for

assistance from the PFO/FCO/FRC/SFLEO or

designated representative;

■ Orchestrate the accomplishment of approved mission

assignments utilizing available resources;

■ Assign military liaison officers as appropriate to ESF

agencies at the JFO to provide technical assistance or

facilitate timely coordination; and

■ Refer problematic or contentious issues through the

appropriate military chain of command to the Office

of the Assistant Secretary of Defense for Homeland

Defense.

Based on the magnitude, type of disaster, and

anticipated level of resource involvement, the

supported combatant commander may utilize a Joint

Task Force (JTF) to consolidate and manage supporting

military activities. A JTF commander exercises

operational control of all allocated DOD resources

(excluding USACE resources, National Guard forces

operating in State Active Duty or Title 32 status, and, in

some circumstances, DOD forces in support of the

FBI). In the event that a JTF is utilized, the DCO may

continue to perform all duties set forth above.

Exceptions

Requests for DSCA originating at the JFO will be

coordinated and processed through the DCO with the

exception of requests for DOD/USACE support,

National Guard forces operating in State Active Duty or

Title 32 status, and, in some cases, DOD forces in

support of the FBI.

■ U.S. Army Corps of Engineers: USACE is a public

engineering organization within DOD providing

engineering support and services to DOD activities

around the globe as well as to the Nation’s Civil

Works flood protection and navigation infrastructure.

USACE provides support as a primary agency and

coordinating agency for ESF #3, and as a support

agency to other ESFs as specified in the annexes.

USACE performs emergency support activities under

separate authorities, to include Public Law 84-99.

■ Army and Air National Guard Forces: National

Guard forces employed under State Active Duty or

Title 32 status are providing support to the Governor

of their State and are not part of Federal military

response efforts.

■ Support to the Federal Bureau of Investigation:

Support for law enforcement and domestic

counterterrorism activities is provided in limited

circumstances consistent with applicable laws and, in

some circumstances, independent of the DCO.

Immediate Response Authority

Imminently serious conditions resulting from any civil

emergency may require immediate action to save lives,

prevent human suffering, or mitigate property damage.

When such conditions exist and time does not permit

approval from higher headquarters, local military

commanders and responsible officials from DOD

components and agencies are authorized by DOD directive

42 | National Response Plan December 2004
and pre-approval by the Secretary of Defense, subject to

any supplemental direction that may be provided by their

DOD component, to take necessary action to respond to

requests of civil authorities consistent with the Posse

Comitatus Act (18 U.S.C. § 1385). All such necessary

action is referred to as “Immediate Response.”

Export of DOD Specialized 

Capabilities and Training

In addition to direct support for incident response,

DOD possesses specialized capabilities employed in

support of Federal, State, local, and tribal government

agencies, to include their first responder communities.

Included among these specialized capabilities are test

and evaluation facilities and capabilities; education and

exercise expertise; explosive detection; technical escort;

medical services; the transfer of applicable technologies,

including those developed through DOD science and

technology programs; and the expertise of DOD

personnel. The DOD Homeland Defense Coordination

Office established at DHS Headquarters facilitates

interdepartmental cooperation and transfer of these

capabilities to the emergency responder community.

Federal Law Enforcement Assistance

Each State has jurisdiction for enforcement of State law,

using State and local resources, including the National

Guard (to the extent that the National Guard remains

under State authority and has not been called into

Federal service or ordered to active duty).

The Federal Government has jurisdiction for

enforcement of Federal law, using Federal resources.

State and local law enforcement agencies may be

requested to provide support to Federal law

enforcement during Incidents of National Significance.

Federal agencies may be requested to provide public

safety and security support during Incidents of

National Significance. The ESF #13 Annex provides

further guidance on the integration of public safety and

security resources to support the full range of incident

management functions.

Proactive Federal Response to Catastrophic Events

December 2004 National Response Plan | 43

The NRP establishes policies, procedures, and

mechanisms for proactive Federal response to

catastrophic events. A catastrophic event is any natural

or manmade incident, including terrorism, that results

in extraordinary levels of mass casualties, damage, or

disruption severely affecting the population,

infrastructure, environment, economy, national morale,

and/or government functions. A catastrophic event

could result in sustained national impacts over a

prolonged period of time; almost immediately exceeds

resources normally available to State, local, tribal, and

private-sector authorities in the impacted area; and

significantly interrupts governmental operations and

emergency services to such an extent that national

security could be threatened. All catastrophic events are

Incidents of National Significance.

Implementation of Proactive Federal

Response Protocols

Protocols for proactive Federal response are most likely

to be implemented for catastrophic events involving

chemical, biological, radiological, nuclear, or high-yield

explosive weapons of mass destruction, or largemagnitude earthquakes or other natural or technological

disasters in or near heavily populated areas.

Guiding Principles for Proactive Federal Response

Guiding principles for proactive Federal response

include the following:

■ The primary mission is to save lives; protect critical

infrastructure, property, and the environment;

contain the event; and preserve national security.
U.S. Possessions and Freely Associated States

■ Standard procedures regarding requests for assistance

may be expedited or, under extreme circumstances,

suspended in the immediate aftermath of an event of

catastrophic magnitude.

■ Identified Federal response resources will deploy and

begin necessary operations as required to commence

life-safety activities.

■ Notification and full coordination with States will occur,

but the coordination process must not delay or impede

the rapid deployment and use of critical resources.

States are urged to notify and coordinate with local

governments regarding a proactive Federal response.

■ State and local governments are encouraged to

conduct collaborative planning with the Federal

Government as a part of “steady-state” preparedness

for catastrophic incidents.

Implementation Mechanisms for Proactive

Federal Response to Catastrophic Events

The NRP Catastrophic Incident Supplement (described in the

Catastrophic Incident Annex) addresses resource and procedural implications of catastrophic events to ensure the rapid

and efficient delivery of resources and assets, including special teams, equipment, and supplies that provide critical lifesaving support and incident containment capabilities. These

assets may be so specialized or costly that they are either not

available or are in insufficient quantities in most localities.

The procedures outlined in the NRP Catastrophic

Incident Supplement are based on the following:

■ The pre-identification of Federal assets and capabilities;

■ The strategic location of pre-identified assets for

rapid deployment; and

■ The use of pre-scripted mission assignments for

Stafford Act declarations, or individual agency

authority and funding, to expedite deployment upon

notification by DHS (in accordance with procedures

established in the NRP Catastrophic Incident

Supplement) of a potential catastrophic event.

Agencies responsible for these assets will keep DHS

apprised, through the HSOC, of their ongoing status and

location until the JFO is established. Upon arrival at the

scene, Federal assets will coordinate with the Unified

Command, the SFLEO, and the JFO (or its forward

elements) when established. Demobilization processes,

including full coordination with the JFO Coordination

Group, are initiated either when the mission is

completed or when it is determined the magnitude of

the event does not warrant continued use of the asset.

44 | National Response Plan December 2004

The NRP concept of operations, in general, is applicable

to any response to Incidents of National Significance

occurring within the U.S. possessions, including the

insular areas,2 as well as in the Federated States of

Micronesia and the Republic of the Marshall Islands.3

Stafford Act assistance is available to include Puerto Rico,

the Virgin Islands, Guam, American Samoa, and the

Commonwealth of the Northern Mariana Islands, which

are included in the definition of “State” in the Stafford

Act. At present, Stafford Act assistance is also available to

the Federated States of Micronesia and the Republic of the

Marshall Islands under the Compact of Free Association.4

Nevertheless, there are unique factors involved in working

with the U.S. possessions and Freely Associated States. The

Department of the Interior (DOI), through the Office of

Insular Affairs, is responsible for coordinating relationships

with the insular areas and the Freely Associated States and

is available to serve as a resource for agencies with disaster

assistance responsibilities.

2 Insular areas include American Samoa, the Commonwealth of the Northern Mariana Islands, Guam, and the U.S.

Virgin Islands.

3 The Federated States of Micronesia and the Republic of the Marshall Islands are two of the Freely Associated States

under the Compact of Free Association. The U.S. Government does not provide disaster assistance to the Republic

of Palau, the third Freely Associated State, in accordance with the Compact of Free Association.

4 The mechanism for the provision of disaster assistance to the Federated States of Micronesia and the Republic of

the Marshall Islands has been renegotiated. Following enactment by Congress of legislation approving the new

mechanism, it is anticipated that the U.S. Agency for International Development will assume the lead role in the

provision of disaster assistance to these independent nations.
External Affairs

This section discusses the mechanisms for ensuring

accurate, consistent, and timely communications with

all of the critical external audiences—the general

public, media, congressional and governmental leaders,

and the international community. (See the Public Affairs

and ESF #15 Annexes for additional information.)

December 2004 National Response Plan | 45

Public Affairs Public Affairs activities ensure the coordinated and timely release of incident-related

prevention, preparedness, response, recovery, and mitigation information to the public.

ESF #15 provides the interagency coordination mechanisms and the resource support

for Federal JIC activities.

The Public Affairs Support Annex provides an overview of the required protocols and

processes for media relations and incident communications, including protocols for

handling sensitive information, which are further outlined in the NRP Incident

Communications Emergency Supplement (published as a separate document).

Community Relations Community Relations activities provide information on assistance programs to affected

individuals, groups, organizations, and local governments. Community Relations serves

as a direct link to these communities and works closely with program elements to

deliver messages relating to the availability of programs and resources.

Congressional Affairs Congressional Affairs provides information to the Washington, DC, and district offices of

Members of Congress and addresses incident-related questions, concerns, and problems

expressed by their constituents.

International Affairs International Affairs provides guidance for events that include cross-border issues,

coordination of foreign visitors, and response to offers of assistance from foreign

governments. (See the International Coordination Support Annex for additional

information.)

State and Local

Coordination

State and Local Coordination assists JFO leadership with direct communications,

interaction, and outreach to local and State elected officials. (See the ESF #15 Annex for

additional information.)

Tribal Affairs Tribal Affairs provides procedures to facilitate incident management programs and

resources available to tribal governments to assist them in protecting their families,

community livelihood, and cultural and environmental resources. (See the Tribal

Relations Support Annex for additional information.)

Component Description
46 | National Response Plan December 2004

V. Incident Management Actions

Actions

This section describes incident management actions ranging from initial threat notification to early coordination

efforts to assess and disrupt the threat, to preparatory

activation of the ESF structure, to deployment of Federal

resources in support of incident response and recovery

operations. These actions do not necessarily occur in

sequential order; many may be undertaken concurrently

in response to single or multiple threats or incidents.

Figure 10 depicts initial incident management actions.

In situations where it is apparent that an Incident of

National Significance may be imminent or has already

occurred, assessment and pre-incident interagency

coordination typically are compressed. In these

instances, DHS moves quickly to coordinate multiple

Federal activities to include the following: informationsharing, interagency course of action development, alert

and deployment of resources, operational coordination,

and other assistance as required, in consultation and

coordination with other Federal departments and

agencies and the affected jurisdiction(s).

Notification and Assessment

Federal, State, local, tribal, private-sector, and

nongovernmental organizations report threats, incidents,

and potential incidents using established communications

and reporting channels. The HSOC receives threat and

operational information regarding incidents or potential

incidents and makes an initial determination to initiate

the coordination of Federal information-sharing and

incident management activities.

Reporting Requirements

Federal, State, tribal, private-sector, and NGO EOCs are

either required or encouraged, as noted below, to report

incident information to the HSOC. In most situations,

incident information is reported using existing mechanisms to State or Federal operations centers, which will

in turn report the information to the HSOC. Suspicious

activity, terrorist threats, and actual incidents with a

potential or actual terrorist nexus are reported immediately to a local or regional JTTF (or the NJTTF, in the

case of Federal departments/agencies). Subsequently, the

FBI SIOC immediately reports the terrorist threat, if the

FBI deems the threat to be credible, or the actual incident to the HSOC and the NCTC. Additionally, actual

incidents, regardless of whether or not there is a terrorist

nexus, are reported immediately to the HSOC by appropriate governmental and nongovernmental entities.

■ Federal Departments and Agencies: Federal

departments and agencies are required to report

information relating to actual or potential Incidents

of National Significance to the HSOC. This

information may include:

■ Implementation of a Federal department or agency

emergency response plan;

■ Actions to prevent, respond to, or recover from an

Incident of National Significance for which a

Federal department or agency has responsibility

under law or directive;

■ Submission of requests for assistance to, or receipt

of a request from, another Federal department or

agency in the context of an Incident of National

Significance;

■ Receipt of requests for assistance from State, local, or

tribal governments; NGOs; or the private sector in the

context of an Incident of National Significance; and

■ Suspicious activities or threats with a potential

terrorist nexus (normally through the FBI SIOC to

the HSOC and the NCTC).

■ State/Tribal Governments: State and tribal

governments and emergency management agencies use

established reporting mechanisms and are encouraged to

report information relating to actual or potential

Incidents of National Significance to the HSOC, using

procedures established by DHS. (Information regarding

potential terrorist threats should be reported through the

local or regional JTTF.) This information may include:

■ Implementation of an incident management or

emergency response plan or action to prevent,

respond to, or recover from an Incident of National

Significance;

■ Announcement of emergency proclamations or

declarations made under State, local, or tribal

authority; and

■ Activation of State or tribal mutual-aid agreements

or compacts in response to incidents resulting in

emergency proclamations or declarations, or

requiring Federal assistance.
December 2004 National Response Plan | 47

■ Local Governments: Local governments communicate

information regarding actual or potential Incidents of

National Significance to the HSOC through established

reporting mechanisms in coordination with State

government officials and EOCs.

■ Private-Sector/Nongovernmental Organizations:

Private-sector and nongovernmental organizations are

encouraged to communicate information regarding

actual or potential Incidents of National Significance to

the HSOC through existing jurisdictional reporting

mechanisms, as well as established information-sharing

and analysis organizations (ISAOs).

Situational Awareness and 

Initial Incident Assessment

The HSOC maintains daily situational awareness to

identify and monitor threats or potential threats inside,

on, or approaching the borders of the United States.

Upon receipt, the HSOC passes such information to

appropriate Federal, State, local, and tribal intelligence

and law enforcement agencies as expeditiously as

possible, according to established security protocols

and in coordination with the FBI and NCTC.

FIGURE 10. Flow of initial national-level incident management actions

HSOC

HSOC coordinates with

depts. and agencies to

investigate and assess

Incident mitigated by

Federal, State, local,

and tribal agencies

Activated or deployed resources conduct

prevention, preparedness, response, and

recovery actions

Reports and Notification

From established 

reporting mechanisms, e.g.:

■ FBI SIOC

■ National Response Center

■ RRCC

■ NCTC

■ Other Federal EOCs

■ State EOCs

■ Federal agency command posts

■ ISAOs

Assessment

Further 

assessment 

needed

■ Use of other

supporting national

interagency and

agency-specific plans

Actual/Potential Incident 

of National Significance

Non-national

Incident

DHS actions may include:

■ Issuance of coordinated alerts and warnings

■ Sharing of incident information

■ Activation of NRP organizational elements

(NRCC, IIMG, JFO, etc.) and deployment of

resources
The HSOC also monitors nonterrorist hazards and

accidents, and receives reports from various operations

centers, such as the FOC regarding natural hazards

(severe storms, floods, etc.) and the National Response

Center regarding oil spills and hazardous materials

releases. When notified of a hazard or an incident with

possible national-level implications, the HSOC assesses

the situation and notifies the Secretary of Homeland

Security accordingly. Based on the information, the

Secretary of Homeland Security determines the need

for activation of NRP elements. The HSOC coordinates

with other departments and agencies regarding further

field investigation, as required.

The FBI, NCTC, and DHS/IAIP evaluate intelligence

relating to terrorist threats and other potential incidents.

All Federal, State, local, and tribal departments and

agencies must notify their local or regional FBI JTTF

regarding information associated with a threat of

terrorism or an actual terrorist incident. Additionally, the

HSOC is notified immediately in the case of an actual

incident, regardless of whether or not there is a terrorist

nexus. In the case of a threat, the local FBI JTTF notifies

the NJTTF. Federal department and agency headquarters

should notify the NJTTF or FBI SIOC with similar

information. Upon receipt of a threat of terrorism, the

FBI conducts a formal threat credibility assessment, which

may include assistance from select interagency experts. If

a threat is deemed credible, the FBI SIOC notifies the

HSOC immediately to enable subsequent NRP actions.

Dissemination of Warnings and Bulletins

Watches, warnings, and other emergency bulletins are

issued by various agencies based on their statutory

missions and authorities. For example, the National

Weather Service issues weather-related notices to warn

the public of impending storms and severe weather.

The HSOC coordinates with the NCTC,TSC, FBI,

Department of Health and Human Services (HHS), and

similar programs for terrorism-related threat analysis

and warning, and disseminates homeland security

threat warnings and advisory bulletins. The HSOC

performs this task consistent with normal steady-state

threat monitoring, assessment, research, and reporting

functions. The HSOC follows Executive orders,

directives, MOUs/MOAs, and procedures in place

between the NCTC,TSC, and DHS/IAIP.

The FBI disseminates terrorism law enforcement

bulletins and warnings to ensure that vital information

regarding terrorism reaches appropriate officials within

the U.S. counterterrorism and law enforcement

communities. This information is transmitted via secure

teletype. Each message transmitted under this system is

an alert, an advisory, or an assessment—an alert if the

terrorist threat is credible and specific, an advisory if the

threat is credible but general in both timing and target,

or an assessment to impart facts and/or threat analysis

concerning terrorism. These products are fully

coordinated with DHS prior to release.

The FOC, in coordination with the HSOC, facilitates

distribution of warnings, alerts, and bulletins to the

emergency management community using a variety of

communications systems such as:

■ National Warning System (NAWAS): NAWAS is the

primary system for emergency communications from

the Federal Government to both State and county

warning points.

■ Washington Area Warning System (WAWAS):

Although not directly tied to the NAWAS circuits,

WAWAS is a mechanism for providing emergency

communications to Washington, DC, area officials in

the event of an emergency.

■ National Emergency Alert System (National EAS):

Formerly known as the Emergency Broadcast System,

the National EAS is a nationwide network of

broadcast stations and cable systems that provide a

readily available and reliable means to communicate

emergency information to the American people.

■ State and local EAS: State and local authorities have

their own EAS which may be used to broadcast

information on major disasters or emergencies.

48 | National Response Plan December 2004

The HSOC maintains daily situational awareness to

identify and monitor threats or potential threats inside,

on, or approaching the borders of the United States.

Watches, warnings, and other emergency bulletins

are issued by various agencies based on their

statutory missions and authorities.
December 2004 National Response Plan | 49

Evolving Threats Identified at the National Level

The ongoing fusion of intelligence at the national level

may result in the detection of a potential terrorist

threat of a specific and credible nature. Unlike

incidents reported from the field, this process results in

the initiation of initial incident management actions at

the headquarters level and generates a “top-down”

response to deter, prevent, and otherwise respond to

the terrorist threat.

The HSOC, NCTC, and FBI SIOC coordinate

information regarding terrorist threats. When the FBI

or DHS/IAIP determines that a credible threat exists, it

notifies and coordinates with the HSOC, which

immediately notifies the FBI SIOC, if it has not been

already informed. The HSOC then notifies the Secretary

of Homeland Security, who may elect to activate any or

all of the NRP organizational elements, as well as

initiate the coordination of interagency policy issues

and operational courses of action through the White

House, as appropriate. The Secretary may also elect to

activate and prepare to deploy various special teams to

conduct prevention, preparedness, response, and

recovery activities.

Activation

This section discusses the early-stage efforts to activate

and deploy NRP organizational elements and Federal

resources, including special teams, emergency facilities,

and other response resources.

For actual or potential Incidents of National

Significance, the HSOC reports the situation to the

Secretary of Homeland Security and/or senior staff as

delegated by the Secretary, who then determines the

need to activate components of the NRP to conduct

further assessment of the situation, initiate interagency

coordination, share information with affected

jurisdictions and the private sector, and/or initiate

deployment of resources. Concurrently, the Secretary

also makes a determination of whether an event meets

the criteria established for a potential or actual Incident

of National Significance as defined in this plan.

When the Secretary declares an Incident of National

Significance, Federal departments and agencies are

notified by the HSOC (as operational security

considerations permit), and may be called upon to staff

the IIMG and NRCC. The affected State(s) and tribes

also are notified by the HSOC using appropriate

operational security protocols. In the pre-incident

mode, such notification may be conducted discreetly,

on a need-to-know basis, so as to preserve the

operational security and confidentiality of certain law

enforcement and investigative operations.

(Note: NRP resources, such as a PFO, may be

designated and activated in the context of a general

threat, prior to a formal Incident of National

Significance determination by the Secretary of

Homeland Security, to facilitate pre-incident

interagency and multijurisdictional coordination and

threat assessment activities.) For acts of terrorism,

information-sharing, deployment of resources, and

incident management actions during actual or potential

terrorist incidents are coordinated with DOJ.

The NRCC and RRCC deploy, track, and provide

incident-related information until the JFO is

established.

The next section describes the NRP organizational

elements that could be activated and their initial actions.

When the Secretary declares an Incident of National

Significance, Federal departments and agencies are

notified by the HSOC, and may be called upon to

staff the IIMG and NRCC.
50 | National Response Plan December 2004

Headquarters Organizational Elements

The headquarters organizational elements include the following:

Interagency Incident

Management Group

The IIMG may convene at DHS Headquarters when activated for an initial meeting.

IIMG members or alternates remain on call to meet at any time during a heightened

period of alert or during an incident or on a 24/7 basis as required by the situation at

hand. The IIMG may assign liaison officers to the FBI SIOC and/or other EOCs, as

required, and may establish communication with State Homeland Security Advisor(s)

and/or State Emergency Management Director(s) through the DHS OSLGCP

representatives to the IIMG.

National Response

Coordination Center

The NRCC begins interagency operations by coordinating initial activation, the

deployment of special teams, initiation and monitoring of mission assignments (Stafford

Act only) or other interagency requirements (non-Stafford Act), and RRCC(s) activities

as required and as permitted by operational security considerations. The NRCC, through

the FOC, informs primary agencies of the activation and provides a time to report to the

NRCC. Primary agencies may notify and activate support agencies if required.

Primary agencies determine the impact of an incident on their own capabilities and

identify, mobilize, and deploy resources under the mission assignment process or

interagency agreements to support response activities in the affected jurisdiction(s).

Formal alert and notification protocols and procedures for activation of ESFs are

included as part of the NRCC standard operating procedures, to be published separately.

Federal Emergency

Operations Centers

Agencies may activate their headquarters EOCs to provide coordination and direction to

their headquarters and regional response elements. Federal EOCs maintain ongoing

contact and coordination with the HSOC.

Strategic Information

and Operations Center

Upon determination that a terrorist threat is credible or that an act of terrorism has

occurred, FBI Headquarters initiates liaison with other Federal agencies to activate their

operations centers and provide liaison officers to the SIOC. In addition, FBI Headquarters

initiates communications with the SAC of the responsible Field Office, apprising him/her

of possible courses of action and discussing possible deployment of the DEST. The FBI

SAC establishes initial operational priorities based upon the specific circumstances of the

threat or incident. This information is then forwarded to FBI Headquarters to coordinate

identification and deployment of appropriate resources. The SIOC will notify the HSOC

immediately upon confirmation of a credible threat or terrorist nexus.

Principal Federal 

Official

The Secretary provides formal notification of the appointment of a PFO to the

Governor(s)/mayor(s) of affected State(s)/municipality(ies),Tribal Chief Executive

Officers, and Federal departments and agencies. The HSOC notifies other Federal, State,

and tribal EOCs of the PFO designation. State EOCs are expected to pass this designation

to State and local agencies and EOCs as appropriate. PFOs may be designated on a preincident basis according to available threat information, or in response to an incident in

progress. If the designation is made based upon a pre-incident threat assessment,

formal notification of the PFO designation may be made on a discreet, need-to-know

basis to preserve operational security.

Element Description
December 2004 National Response Plan | 51

Emergency 

Response Team

The RRCC initially deploys a DHS/EPR/FEMA-led ERT-A, including rapid needs assessment

personnel and appropriate ESF representatives, to State operating facilities and incident sites

to assess the impact of the situation, collect damage information, gauge immediate Federal

support requirements, and make preliminary arrangements to set up Federal field facilities.

When regional resources are overextended, or an event poses potentially significant

consequences, DHS Headquarters may deploy an ERT-N to coordinate the initial response.

The FCO/FRC heads the interagency ERT. The ERT works with the affected State and

coordinates Federal support from the JFO. The ERT may establish an IOF to serve as an

interim facility until the JFO is established. In a terrorism event, this activity will be

coordinated with the JOC. Federal agencies and other appropriate entities provide

resources to assist incident management efforts under DHS-issued mission assignments

or their own authorities.

The ERT-A/ERT-N coordinates damage assessment and selection of locations for field facilities

with the State. It also coordinates mission assignments for direct Federal assistance and procurement of goods and services with the Comptroller and RRCC. The ERT-A/ERT-N begins

the transition to a tailored Emergency Response Team and initiates establishment of the JOC.

Federal Incident

Response Support

Team

Based upon the nature of the incident, the FIRST may deploy to the scene to support State

operations. The FIRST provides technical assistance to assess the situation, identify critical

and unmet needs, provide protective action recommendations, and establish incident support

facilities. The FIRST coordinates with the ERT-A and integrates into the JFO when established.

Domestic Emergency

Support Team

The DEST may be deployed to provide technical support for management of potential or

actual terrorist incidents. Based upon a credible threat assessment, the Attorney General,

in consultation with the Secretary of Homeland Security, may request authorization

through the White House to deploy the DEST. Upon arrival at the JFO or critical

incident location, the DEST may act as a stand-alone advisory team to the FBI SAC

providing required technical assistance or recommended operational courses of action.

Other Special Teams Depending on the nature of the incident, other special teams may be deployed in

coordination with other departments and agencies. The NRP annexes include discussion

of special teams and resources.

Federal First

Responders

Some Federal agencies have statutory authority and responsibility to deploy directly as first

responders upon notification of an incident or potential incident (e.g., OSCs responding to

oil or hazardous materials incidents). These responders may arrive on-scene before there

is a determination as to whether the incident is an Incident of National Significance, but

once declared, would operate under the protocols established in the NRP.

Regional Elements

Regional resources may be activated to monitor and

assess the need for Federal incident management support.

The DHS/EPR/FEMA Regional Director deploys a liaison

to the State EOC to provide technical assistance including

advice on the Stafford Act declaration process and

available Federal assistance, and also partially or fully

activates the RRCC including, where appropriate, regional

representatives of Federal departments and agencies.

The RRCC and NRCC Logistics Sections support the

establishment of a JFO and mobilization center(s). The

RRCC coordinates Federal support of State requirements

until the FCO or FRC assumes those responsibilities. A JIC

may be established, as required, to provide a central point

for coordinating emergency public information activities.

Field Elements

The field elements include the following:

Element Description
Requests for DHS Assistance

Requests for DHS assistance can come from State

Governors requesting aid under the Stafford Act or

from Federal agencies with a need for Federal-toFederal support. Federal departments and agencies

supporting the NRP are activated and engaged using

either a mission assignment process for events

supported by Stafford Act funding, or through

interagency agreements or other direct funding sources

when implemented using other authorities.

■ Federal Support to States: DHS/EPR/FEMA processes

a Governor’s request for Presidential disaster or

emergency declarations under the direction provided

in the Stafford Act. Governors submit these requests

to DHS/EPR/FEMA indicating the extent of damage

and the types of Federal assistance required.

DHS/EPR/FEMA then forwards the Governor’s request

to the White House, simultaneously notifying the

Secretary of Homeland Security, along with a

recommended course of action.

Concurrent with a Presidential declaration of a major

disaster or emergency and official appointment of an

FCO, DHS/EPR/FEMA designates the types of

assistance to be made available and the counties

eligible to receive assistance. In large-scale or

catastrophic events, the declaration process can be

expedited. In certain emergencies involving Federal

primary responsibility, the Stafford Act allows the

President to provide emergency assistance without a

Governor’s request. Appendix 5 provides an overview

of the request process under the Stafford Act.

In a non-Stafford Act emergency, the President may

direct Federal departments and agencies to conduct

prevention, preparedness, emergency response, and

incident management activities consistent with their

authorities and responsibilities on a nonreimbursable

basis. Appendix 6 provides an overview of Federal-toFederal support in non-Stafford Act situations.

■ Federal-to-Federal Support: For some incidents for

which a Stafford Act declaration is not made and a

Federal entity is responding to an incident under its

own authorities, that entity may require additional

assistance from other Federal departments or agencies

that is not otherwise readily available to them. In

such circumstances, the affected Federal department

or agency may request DHS coordination to obtain

that assistance.

Federal agencies participating in the NRP will request

and provide Federal-to-Federal support by executing

interagency or intra-agency reimbursable agreements

(RAs), in accordance with the Economy Act (31 U.S.C.

§ 1535) or other applicable authorities. Federal

agencies providing mutual aid support may request

reimbursement from the requesting agency for eligible

expenditures. (See Financial Management Support

Annex Attachment 3, Memorandum of Understanding:

Mutual Aid for Incidents of National Significance

(Non-Stafford Act), for additional information.)

DHS will use the ESFs as the mechanism for

coordinating required support from other agencies.

When such DHS assistance is provided, the incident

becomes an Incident of National Significance, and

DHS coordinates Federal resources under the

authority provided in HSPD-5. In these situations,

DHS designates an FRC to perform the resource

coordination function (rather than an FCO as occurs

under a Stafford Act declaration).

Requests for assistance are submitted to the DHS

Executive Secretary for processing and Secretary

consideration/approval. Upon approval of the request

for assistance, the Secretary issues an operation order

to the HSOC. The HSOC, through the NRCC,

coordinates the activation of the appropriate ESFs. At

this time, the Secretary of Homeland Security also

may elect to activate the IIMG to begin monitoring

the situation and developing appropriate

recommendations and courses of action.

Pre-Incident Actions

At the national level, the HSOC facilitates interagency

information-sharing activities to enable the assessment,

prevention, or resolution of a potential incident. Based

upon guidance from the HSC/NSC (Principals,

Deputies, or PCC), DHS coordinates with appropriate

agencies as required during developing situations to

utilize agency resources and authorities to prevent an

incident, as well as to initiate appropriate preparatory

and mitigating measures to reduce vulnerabilities. If

warranted, the IIMG may recommend the activation of

additional NRP organizational elements to provide

52 | National Response Plan December 2004
December 2004 National Response Plan | 53

appropriate resources to enable more robust prevention

and/or preparedness activities.

Prevention actions related to terrorism threats and

incidents include law enforcement activities and

protective activities. All Federal law enforcement

activities are coordinated by the Attorney General,

generally acting through the FBI. Initial prevention

efforts include, but are not limited to, actions to:

■ Collect, analyze, and apply intelligence and other

information;

■ Conduct investigations to determine the full nature

and source of the threat;

■ Implement countermeasures such as surveillance and

counterintelligence;

■ Conduct security operations, including vulnerability

assessments, site security, and infrastructure protection;

■ Conduct tactical operations to prevent, interdict,

preempt, or disrupt illegal activity;

■ Conduct attribution investigations, including an assessment of the potential for future related incidents; and

■ Conduct activities to prevent terrorists, terrorist

weapons, and associated materials from entering or

moving within the United States.

The majority of initial actions in the threat or hazard

area are taken by first responders and local government

authorities, and include efforts to protect the public

and minimize damage to property and the

environment, as follows:

■ Public Health and Safety: Initial safety efforts focus on

actions to detect, prevent, or reduce the impact to public

health and safety. Such actions can include

environmental analysis, plume modeling, evacuations,

emergency sheltering, air monitoring, decontamination,

emerging infectious disease tracking, emergency

broadcasts, etc. These efforts may also include public

health education; site and public health surveillance and

testing procedures; and immunizations, prophylaxis, and

isolation or quarantine for biological threats coordinated

by HHS and State and local public health officials. (See

the ESF #8 Annex for additional information.)

■ Responder Health and Safety: The safety and health

of responders is also a priority. Actions essential to

limit their risks include full integration of deployed

health and safety assets and expertise; risk assessments

based upon timely and accurate data; and situational

awareness that considers responder and recovery

worker safety.

A comprehensive location and/or operational

response safety and health plan is key to mitigating

the hazards faced by responders. These efforts

include incident hazard identification and

characterization; implementation and monitoring of

personal protective equipment selection, use, and

decontamination; exposure sampling and analysis;

worker health and safety risk analysis; health and

safety monitoring; and development/ongoing

evolution of the site-specific safety and health plan.

(See the Worker Safety and Health Support Annex for

additional information.)

■ Property and the Environment: Responders may

also take incident mitigation actions to protect public

and private property and the environment. Such

actions may include sandbagging in anticipation of a

flood, or booming of environmentally sensitive areas

in response to a potential oil spill.

Response Actions

Once an incident occurs, the priorities shift from

prevention, preparedness, and incident mitigation to

immediate and short-term response activities to

preserve life, property, the environment, and the social,

economic, and political structure of the community. In

the context of a terrorist threat, simultaneous activities

are initiated to assess regional and national-level

impacts, as well as to assess and take appropriate action

to prevent and protect against other potential threats.

Prevention

Actions taken to avoid an incident or to intervene to

stop an incident from occurring. Prevention involves

actions taken to protect lives and property.

Response

Activities that address the short-term, direct effects

of an incident. These activities include immediate

actions to preserve life, property, and the

environment; meet basic human needs; and

maintain the social, economic, and political 

structure of the affected community.
54 | National Response Plan December 2004

Reinforcing the initial response to an incident, some

Federal agencies may operate in the ICP as Federal first

responders and participate in the Unified Command

structure. Once the JFO is established, the JFO

Coordination Group sets Federal operational priorities.

The JFO provides resources in support of the Unified

Command and incident management teams conducting

on-scene operations through the State and local EOCs.

Depending upon the scope and magnitude of the

incident, the NRCC and/or the RRCCs activate the

appropriate ESFs, as needed, to mobilize assets and the

deployment of resources to support the incident. The

NRCC and/or the RRCCs facilitate the deployment and

transportation of the ERT and other teams and specialized

capabilities such as, but not limited to, teams under the

NDMS, the HHS Secretary’s Emergency Response Team,

the Epidemic Intelligence Service, HHS behavioral health

response teams, the U.S. Public Health Service

Commissioned Corps, and Urban Search and Rescue

teams. Other response actions include the establishment

of the JFO and other field facilities and providing a wide

range of support for incident management, public health,

and other community needs.

Response actions also include immediate law

enforcement, fire, ambulance, and emergency medical

service actions; emergency flood fighting; evacuations;

transportation system detours; emergency public

information; actions taken to minimize additional

damage; urban search and rescue; the establishment of

facilities for mass care; the provision of public health and

medical services, food, ice, water, and other emergency

essentials; debris clearance; the emergency restoration of

critical infrastructure; control, containment, and removal

of environmental contamination; and protection of

responder health and safety.

During the response to a terrorist event, law

enforcement actions to collect and preserve evidence

and to apprehend perpetrators are critical. These

actions take place simultaneously with response

operations necessary to save lives and protect property,

and are closely coordinated with the law enforcement

effort to facilitate the collection of evidence without

impacting ongoing life-saving operations.

In the context of a single incident, once immediate

response missions and life-saving activities conclude,

the emphasis shifts from response to recovery

operations and, if applicable, hazard mitigation. The

JFO Planning Section develops a demobilization plan

for the release of appropriate components.

Recovery Actions

Recovery involves actions needed to help individuals and

communities return to normal when feasible. The JFO is

the central coordination point among Federal, State,

local, and tribal agencies and voluntary organizations for

delivering recovery assistance programs.

The JFO Operations Section includes the Human

Services Branch, the Infrastructure Support Branch, and

the Community Recovery and Mitigation Branch. The

Human Services and Infrastructure Support Branches of

the JFO Operations Section assess State and local

recovery needs at the outset of an incident and develop

relevant timeframes for program delivery. These

branches ensure Federal agencies that have relevant

recovery assistance programs are notified of an incident

and share relevant applicant and damage information

with all involved agencies as appropriate, ensuring that

the privacy of individuals is protected.

A brief summary of these branches is presented next.

Recovery

The development, coordination, and execution 

of service- and site-restoration plans and the

reconstitution of government operations and

services through individual, private-sector,

nongovernmental, and public assistance programs.
December 2004 National Response Plan | 55

Human Services Branch The Human Services Branch coordinates assistance programs to help individuals,

families, and businesses meet basic needs and return to self-sufficiency. This branch

also coordinates with volunteer organizations and is involved in donations

management, and coordinates the need for and location of DRCs with local and tribal

governments. Federal, State, local, tribal, voluntary, and nongovernmental organizations

staff the DRCs, as needed, with knowledgeable personnel to provide recovery and

mitigation program information, advice, counseling, and related technical assistance.

Infrastructure 

Support Branch

The Infrastructure Support Branch of the JFO coordinates “public assistance

programs” authorized by the Stafford Act to aid State and local governments and

eligible private nonprofit organizations with the cost of emergency protective services

and the repair or replacement of disaster-damaged public facilities and associated

environmental restoration.

Community Recovery 

and Mitigation Branch

The Community Recovery and Mitigation Branch works with the other Operations

branches and State and local officials to assess the long-term impacts of an Incident of

National Significance, define available resources, and facilitate the development of a

course of action to most efficiently apply available resources to restore and revitalize

the community as well as reduce the impacts from future disasters.

The above branches coordinate with one another to

identify appropriate agency assistance programs to meet

applicant needs, synchronizing assistance delivery and

encouraging incorporation of hazard mitigation

measures where possible. Hazard mitigation measures

are identified in concert with congressionally mandated,

locally developed plans. Hazard mitigation risk analysis;

technical assistance to State, local, and tribal

governments, citizens, and business; and grant assistance

are included within the mitigation framework.

Additionally, these branches work in tandem to track

overall progress of the recovery effort, particularly noting

potential program deficiencies and problem areas.

Long-term environmental recovery may include cleanup

and restoration of public facilities, businesses, and

residences; re-establishment of habitats and prevention

of subsequent damage to natural resources; protection

of cultural or archeological sites; and protection of

natural, cultural, and historical resources from

intentional damage during other recovery operations.

Mitigation Actions

Hazard mitigation involves reducing or eliminating

long-term risk to people and property from hazards and

their side effects. The JFO is the central coordination

point among Federal, State, local, and tribal agencies

and NGOs for beginning the process that leads to the

delivery of mitigation assistance programs.

The JFO’s Community Recovery and Mitigation Branch

is responsible for coordinating the delivery of all

mitigation programs within the affected area, including

hazard mitigation for:

■ Grant programs for loss reduction measures (if

available);

■ Delivery of loss reduction building-science expertise;

■ Coordination of Federal flood insurance operations

and integration of mitigation with other program

efforts;

■ Conducting flood recovery mapping to permit

expedited and accurate implementation of both

recovery and mitigation programs;

■ Predictive modeling to protect critical assets;

■ Early documentation of losses avoided due to

previous hazard mitigation measures; and

■ Community education and outreach necessary to

foster loss reduction.

Branch Description

Mitigation

Activities designed to reduce or eliminate risks to

persons or property or to lessen the actual or

potential effects or consequences of an incident.

Mitigation measures may be implemented prior to,

during, or after an incident.
56 | National Response Plan December 2004

The Community Recovery and Mitigation Branch

works with the Infrastructure and Human Services

Branches and with State, local, and tribal officials to

facilitate the development of a long-term recovery

strategy for the impacted area(s).

Demobilization

When a centralized Federal coordination presence is no

longer required in the affected area, the JFO Coordination

Group implements the demobilization plan to transfer

responsibilities and close out the JFO. After the closing of

the JFO, long-term recovery program management and

monitoring transitions to individual agencies’ regional

offices and/or headquarters, as appropriate.

Remedial Actions

DHS formally convenes interagency meetings called

“hotwashes” to identify critical issues requiring

headquarters-level attention, lessons learned, and best

practices associated with the Federal response to

Incidents of National Significance. Hotwashes typically

are conducted at major transition points over the

course of incident management operations, and include

State, local, and tribal participation as appropriate.

Identified issues are validated and promptly assigned to

appropriate organizations for remediation, in

accordance with DHS/EPR/FEMA’s Remedial Action

Management Program (RAMP). DHS/EPR/FEMA

manages the RAMP and coordinates, monitors, and

reports the status of Federal remediation actions for

issues arising from Incidents of National Significance.

After-Action Report

Following an incident, the JFO Coordination Group

submits an after-action report to DHS Headquarters

detailing operational successes, problems, and key

issues affecting incident management. The report

includes appropriate feedback from all Federal, State,

local, tribal, nongovernmental, and private-sector

partners participating in the incident. The Emergency

Support Function Leaders Group (ESFLG) and the

Regional Interagency Steering Committees (RISCs)—

the headquarters-level and regional-level interagency

NRP preparedness organizations (described in section

VI on page 58)—use information from these reports to

update plans and procedures as required.

Each Federal agency involved should keep records of its

activity to assist in preparing its own after-action report.

The DHS OSLGCP has established and maintains the

Lessons Learned Information Sharing system (formerly

Ready-Net) as the national repository for reports and

lessons learned. The NIMS Integration Center supports

and contributes to this national system.

NRP Operations Under HSAS Threat Conditions

General

The Homeland Security Advisory System, created by

HSPD-3 and administered by DHS/IAIP, is a

comprehensive and effective means for disseminating

information regarding the risk of terrorist attacks and

coordinating appropriate response measures across

jurisdictions and with the private sector. The HSAS is

composed of two separate elements: threat products

and threat condition.

■ Threat products include warning (advisories) and

nonwarning (information bulletins) products

designed to inform Federal, State, local, tribal, and

nongovernmental entities and private citizens of

threat or incident information.

■ The threat condition provides a guide to assist

government and private-sector entities in initiating a

set of standardized actions as a result of increased

terrorist threat levels within the United States, and to

inform the public on updated homeland security

requirements. The raising of the threat condition

generally is reserved for threats that are credible,

corroborated, and imminent. An elevated threat

condition can be applied nationally or by region, by

industry sector, or to a specific target.

During an increase in threat condition, DHS may notify,

activate, and deploy NRP organizational elements in an

effort to enhance the Nation’s ability to prevent,

prepare for, or respond to an attack. The decision to

mobilize NRP organizational elements is based on the
December 2004 National Response Plan | 57

Green (low), Blue (guarded),

Yellow (elevated)

Under Threat Conditions Green through Yellow, the HSOC maintains direct

connectivity with the NCTC and the FBI SIOC regarding the terrorist threat and

maintains situational awareness through the continued monitoring of reported

incidents.

Orange (high) When threat conditions warrant, DHS activates the IIMG to review the threat

information, coordinate interagency activity, and recommend additional

precautions needed to prevent, prepare for, or respond to an attack. If the threat

is elevated regionally or locally, DHS considers designating a PFO and activating

emergency response teams and appropriate RRCC(s) to coordinate with

regional, State, and private-sector entities and notify (or activate) regional

resources (such as the ERT) as appropriate.

Red (severe) When threat conditions warrant, DHS fully activates the NRCC, activates the

RRCCs in the designated threat locations, implements Continuity of Operations

plans, and places other appropriate assets on the highest alert status. If the

threat is elevated regionally or locally, the IIMG provides recommendations for

the deployment of special teams to the area and establishment of a JFO. In the

absence of a JFO, special teams deployed in response to a terrorist threat operate

in coordination with the FBI JOC.

nature and severity of the threat. In response to a

heightened nationwide risk of attack, DHS may activate

the national-level elements and place certain special

teams on standby. For geographic-specific threats,

DHS, in consultation with DOJ, may activate regional

elements and deploy national coordinating elements

and special teams to the affected area.

Procedures/Guidelines

Procedures/guidelines for threat conditions are

described below.

Threat Conditions Procedures/Guidelines
58 | National Response Plan December 2004

VI. Ongoing Plan Management 

and Maintenance

Coordination

The Federal Government uses the “preparedness

organization” concept described in the NIMS for the

ongoing management and maintenance of the NRP.

These organizations typically include all agencies with a

role in incident management and provide a forum for

coordination of policy, planning, training, equipping,

and other preparedness requirements.

Federal Headquarters Level

The HSC Domestic Threat Reduction and Incident

Management (DTRIM) PCC and the ESFLG are the

primary Federal-level organizations for coordinating

interagency policy related to the ongoing management

and maintenance of the NRP and related activities. In

providing sustained management and oversight of the

NRP, these organizations will comply with

preparedness guidelines and standards as identified in

HSPD-5 and HSPD-8.

■ Domestic Threat Reduction and Incident

Management Policy Coordination Committee: The

DTRIM PCC serves as the senior interagency policy

oversight group for the NRP and related issues,

providing an interagency forum for review of NRPrelated plans, policy guidance, and issue resolution.

(The DTRIM PCC replaces the FRP Catastrophic

Disaster Response Group (CDRG) for ongoing

management and maintenance of the NRP in these

areas.)

■ Emergency Support Function Leaders Group: The

ESFLG serves as the senior interagency planning

oversight group for operational issues related to the

NRP and its ongoing management and maintenance.

The ESFLG is comprised of representatives from each

ESF as well as those organizations responsible for

maintaining the NRP Support and Incident Annexes.

The ESFLG provides a forum for developing

supporting plans and procedures, as well as crosscoordination of functions. The ESFLG meets at least

quarterly. In addition, coordinators of the ESF,

Support, and Incident Annexes will meet annually, as

a minimum, to review and update plans and

procedures, incorporate lessons learned and best

practices, and ensure functional coordination and

continuous improvement of all NRP elements. DHS

will develop a charter for the ESFLG further outlining

its roles and responsibilities in this area.

■ Other Federal Preparedness Organizations: Other

existing interagency preparedness organizations

generally are integrated through the ESF structure.

For example, the National Response Team works in

coordination with ESF #10 (Oil and Hazardous

Materials Response) planning efforts.

Federal Regional Level

At the Federal regional level, the RISCs are responsible

for multiagency coordination under the NRP on a

steady-state basis. The RISCs support the national-level

groups by coordinating issues and solutions that are

unique to the regions. RISCs also coordinate

preparedness efforts with other regional-level

preparedness organizations (such as the Regional

Response Teams (RRTs) that coordinate regional ESF

#10 efforts). At a minimum, the RISC is comprised of

representatives from each State in the region and,

where appropriate, regional-level representatives from

ESF primary and support agencies. RISCs meet at least

quarterly and provide an operational-level forum for

regional planning, interagency information-sharing,

and coordination. Each RISC includes an executivelevel committee that meets at least twice yearly to

provide executive-level guidance and oversight. DHS

will publish a charter for the RISCs further describing

their roles and responsibilities.

State and Local Levels

At the State and local levels, various preparedness

organizations provide multiagency coordination

functions.
December 2004 National Response Plan | 59

The NIMS Integration Center

In accordance with the NIMS, the NIMS Integration

Center is responsible for facilitating the development and

adoption of national-level standards, guidelines, and

protocols related to the NIMS. DHS/EPR/FEMA will

consult with the NIMS Integration Center in the

management and maintenance of the NRP as appropriate.

Plan Maintenance

DHS/EPR/FEMA, in close coordination with the DHS

Office of the Secretary, is the executive agent for NRP

management and maintenance. The NRP will be updated

periodically as required to incorporate new Presidential

directives, legislative changes, and procedural changes

based on lessons learned from exercises and actual events.

This section establishes procedures for interim changes

and full updates of the NRP.

■ Types of Changes. Changes include additions of new

or supplementary material and deletions. No

proposed change should contradict or override

authorities or other plans contained in statute,

Executive order, or regulation.

■ Coordination and Approval. Any department or

agency with assigned responsibilities under the NRP

may propose a change to the plan. DHS is responsible

for coordinating all proposed modifications to the

NRP with primary and support agencies and other

stakeholders, as required. DHS will coordinate review

and approval for proposed modifications through the

ESFLG and HSC as required.

■ Notice of Change. After coordination has been

accomplished, including receipt of the necessary

signed approval supporting the final change language,

DHS will issue an official Notice of Change.

The notice will specify the date, number, subject,

purpose, background, and action required, and provide

the change language on one or more numbered and

dated insert pages that will replace the modified pages

in the NRP. Once published, the modifications will be

considered part of the NRP for operational purposes

pending a formal revision and reissuance of the entire

document. Interim changes can be further modified or

updated using the above process.

■ Distribution. DHS will distribute Notices of Change

to all participating agencies, DHS Headquarters and

regional offices, and State emergency management

offices. Notices of Change to other organizations

will be provided upon request.

■ Reissuance of the NRP. Working toward continuous

improvement, DHS is responsible for coordinating full

reviews and updates of the NRP every 4 years, or more

frequently if the Secretary deems necessary. The review

and update will consider lessons learned and best practices identified during exercises and responses to actual

events, and incorporate new information technologies.

DHS will distribute revised NRP documents to the HSC

for the purpose of interagency review and concurrence.

The NRP will be updated periodically as required to

incorporate new Presidential directives, legislative

changes, and procedural changes based on lessons

learned from exercises and actual events.

The NRP and National Preparedness

The NRP provides a key aspect of Federal department

and agency compliance with HSPD-8, National

Preparedness. HSPD-8 directs the Secretary of

Homeland Security to coordinate efforts to measure

and improve national preparedness. For more

information on national preparedness, please refer to

the National Preparedness Goal. Preparedness tasks

related to the NRP and associated supplements are

summarized below:

■ DHS develops a national domestic all-hazards

preparedness goal, in coordination with other Federal
60 | National Response Plan December 2004

departments and agencies, and in consultation with

State and local governments. The goal establishes a

National Preparedness Assessment and Reporting

System, which produces an annual status report to the

President regarding the Nation’s level of preparedness.

■ Appropriate Federal departments and agencies undertake actions to support the national preparedness goal,

including adoption of quantifiable performance measurements in the areas of training, planning, equipment,

and exercises for Federal preparedness. Performance

measures are submitted to DHS for the National

Preparedness Assessment and Reporting System.

■ The annual report to the President includes, but is

not limited to, information on the readiness of

Federal civil response assets. Appropriate Federal

departments and agencies are required to maintain

specialized Federal assets, such as teams, stockpiles,

and caches, at levels consistent with the national

preparedness goal and to make them available for

response activities as established in the NRP.

■ DHS develops and maintains a Federal response

capability inventory, in coordination with other

appropriate Federal departments and agencies, that

includes the performance parameters of the

capability, the timeframe within which the capability

can be brought to bear to an incident, and the

readiness of such capability to manage domestic

incidents. Owners (respective agencies) of Federal

response capabilities are responsible for providing

DHS with updated information to ensure that the

inventory is current.

■ DHS, in coordination with other appropriate Federal

departments and agencies and in consultation with

State and local governments, maintains a

comprehensive National Training Program, a National

Exercise Program, and a National Lessons Learned

Information Sharing System (formerly Ready-Net) to

meet the national preparedness goal. These programs

and systems use the NIMS and include requirements

to support the NRP as appropriate.

NRP-Supporting Documents and Standards 

for Other Federal Emergency Plans

The NRP, as the core plan for domestic incident

management, provides the structures and processes for

coordinating incident management activities for

terrorist attacks, natural disasters, and other

emergencies that meet the criteria established for

Incidents of National Significance. Following the

guidance provided in HSPD-5, the NRP incorporates

existing Federal emergency and incident management

plans (with appropriate modifications and revisions) as

integrated components of the NRP, as supplements, or

as supporting operational plans.

Accordingly, Federal departments and agencies must

incorporate key NRP concepts and procedures for

working with NRP organizational elements when

developing or updating incident management and

emergency response plans. When an agency develops a

national interagency plan that involves events within

the scope of Incidents of National Significance, these

plans are coordinated with DHS to ensure consistency

with the NRP, and are incorporated into the NRP, either

by reference or as a whole. DHS/EPR/FEMA will

maintain a complete set of all current national

interagency plans and provide ready public access to

those plans via website or other appropriate means.

Incident management and emergency response plans

must include, to the extent authorized by law:

■ Principles and terminology of the NIMS;

■ Reporting requirements of the NRP;

■ Linkages to key NRP organizational elements (such as

the IIMG, NRCC, RRCC, JFO, etc.); and

■ Procedures for transitioning from localized incidents

to Incidents of National Significance.

The broader range of NRP-supporting documents

includes strategic, operational, tactical, and incidentspecific or hazard-specific contingency plans and

procedures. Strategic plans are developed by

headquarters-level entities based on long-range goals,

objectives, and priorities. Operational-level plans

merge the on-scene tactical concerns with overall
December 2004 National Response Plan | 61

National Incident

Management System

The NIMS provides a core set of doctrine, concepts, terminology, and

organizational processes to enable effective, efficient, and collaborative incident

management at all levels.

National Interagency Plans National interagency plans are based either on statutory or regulatory authorities,

and/or specific contingencies and types of incidents. These plans provide protocols

for managing the preponderance of incidents that are likely to occur at all levels of

government and that normally can be managed without the need for DHS

coordination. These plans can be implemented independently or concurrently 

with the NRP.

When the NRP is activated, these interagency plans are incorporated as supporting

and/or operational plans. Examples of national interagency plans that are

incorporated into the NRP as supporting and/or operational plans include:

■ National Oil and Hazardous Substances Pollution Contingency Plan;

■ Mass Migration Emergency Plan;

■ National Search and Rescue Plan;

■ National Infrastructure Protection Plan; and

■ National Maritime Security Plan.

For purposes of full incorporation into the NRP, these plans will be referred to as

NRP supplements for the specific contingency or mission area that constitutes the

main focus of such plans. The comprehensive listing of national interagency plans

included as Appendix 4 provides a brief description of each of these plans.

Agency-Specific Plans Agency-specific plans are created to manage single hazards or contingencies under

the purview of the responsible department or agency. An example of an agencyspecific plan is the NRC’s Incident Response Plan.

Operational Supplements Operational supplements typically are detailed plans relating to specific incidents or

events. Operational supplements routinely are developed to support NSSEs.

Regional Plans Regional plans typically are operational supplements to national plans and provide

region-specific procedures and guidance. Examples of regional plans include

regional contingency plans (RCPs) mandated by the NCP to organize oil and

hazardous substance contamination response.

strategic objectives. Tactical plans include detailed,

specific actions and descriptions of resources required

to manage an actual or potential incident. Contingency

plans are based on specific scenarios and planning

assumptions related to a geographic area or the

projected impacts of an individual hazard. The

following is a brief description of NRP-related

documents:

Document Description
62 | National Response Plan December 2004

State/Local/Tribal

Emergency Operations 

Plans

State/local/tribal emergency operations plans are created to address a variety of

hazards. Examples include:

■ State emergency operations plans designed to support State emergency

management functions.

■ Area contingency plans designed to prevent, prepare for, respond to, and recover

from oil and hazardous substance incidents. These plans are developed at the

direction of Federal OSCs in consultation with organizations at the State,

regional, local, and tribal levels.

■ Local emergency operations plans created at the municipal level to complement

State emergency operations plans.

State/Local/Tribal

Multihazard Mitigation 

Plans

State/local/tribal multihazard mitigation plans are developed by States, territories,

tribes, and local communities to provide a framework for understanding

vulnerability to and risk from hazards, and identifying the pre-disaster and postdisaster mitigation measures to reduce the risk from those hazards. Multihazard

mitigation planning requirements were established by Congress through the

Stafford Act, as amended by the Disaster Mitigation Act of 2000.

Private-Sector Plans Private-sector plans are developed by privately owned companies/corporations.

Some planning efforts are mandated by statute (e.g., nuclear power plant

operations), while others are developed to ensure business continuity.

Volunteer and

Nongovernmental

Organization Plans

Volunteer and nongovernmental organization plans are plans created to support

local, State, regional, and Federal emergency preparedness, response, and recovery

operations. Plans include a continuous process of assessment, evaluation, and

preparation to ensure that the necessary authorities, organization, resources,

coordination, and operation procedures exist to provide effective delivery of

services to disaster clients as well as provide integration into planning efforts at all

government levels.

International Plans International plans between the Federal Government and foreign countries

typically deal with natural disasters, mass-casualty incidents, pollution incidents,

terrorism, or public health emergencies.

Procedures Procedures provide operational guidance for use by emergency teams and other

personnel involved in conducting or supporting incident management operations.

These documents fall into five basic categories:

■ Overviews that provide a brief concept summary of an incident management

function, team, or capability;

■ Standard operating procedures (SOPs), standard operating guidelines (SOGs), or

operations manuals that provide a complete reference document, detailing the

procedures for performing a single function (i.e., SOP/SOG) or a number of

interdependent functions (i.e., operations manual);

■ Field operations guides (FOGs) or handbooks that are produced as a durable

pocket or desk guide, containing essential tactical information needed to

perform specific assignments or functions;

■ Point of contact (POC) lists; and

■ Job aids such as checklists or other tools for job performance or job training.

Document Description
For the purposes of the NRP, the following terms and

definitions apply.

Accountable Property. Property that: 1) has an

acquisition cost that is $15,000 or more; 2) has a

unique, identifiable serial number (e.g., computer or

telecommunications equipment); and 3) is considered

“sensitive” (i.e., easily pilferable), such as cellular

phones, pagers, and laptop computers.

Agency. A division of government with a specific

function offering a particular kind of assistance. In

ICS, agencies are defined either as jurisdictional (having

statutory responsibility for incident management) or as

assisting or cooperating (providing resources or other

assistance).

Agency Representative. A person assigned by a

primary, assisting, or cooperating Federal, State, local,

or tribal government agency or private entity that has

been delegated authority to make decisions affecting

that agency’s or organization’s participation in incident

management activities following appropriate

consultation with the leadership of that agency.

Area Command (Unified Area Command). An

organization established (1) to oversee the management of

multiple incidents that are each being handled by an ICS

organization or (2) to oversee the management of 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 EOC facility or at some location other than an ICP.

Available Resources. Resources assigned to an

incident, checked in, and available for use, normally

located in a Staging Area.

Awareness. The continual process of collecting,

analyzing, and disseminating intelligence, information,

and knowledge to allow organizations and individuals

to anticipate requirements and to react effectively.

Casualty. Any person who is declared dead or is

missing, ill, or injured.

Catastrophic Incident. Any natural or manmade

incident, including terrorism, that results in

extraordinary levels of mass casualties, damage, or

disruption severely affecting the population,

infrastructure, environment, economy, national morale,

and/or government functions. A catastrophic event

could result in sustained national impacts over a

prolonged period of time; almost immediately exceeds

resources normally available to State, local, tribal, and

private-sector authorities in the impacted area; and

significantly interrupts governmental operations and

emergency services to such an extent that national

security could be threatened. All catastrophic events are

Incidents of National Significance.

Chain of Command. A series of command, control,

executive, or management positions in hierarchical

order of authority.

Civil Transportation Capacity. The total quantity of

privately owned transportation services, equipment,

facilities, and systems from all transportation modes

nationally or in a prescribed area or region.

Coastal Zone. As defined by the NCP, means all U.S.

waters subject to tide, U.S. waters of the Great Lakes,

specified ports and harbors on inland rivers, waters of

the contiguous zone, other water of the high seas

subject to the NCP, and the land surface or land

substrata, ground waters, and ambient air proximal to

those waters. The term “coastal zone” delineates an

area of Federal responsibility for response action.

Precise boundaries are determined by EPA/USCG

agreements and identified in RCPs.

Command Staff. In an incident management

organization, the Command Staff consists of the

Incident Command and the special staff positions of

Public Information Officer, Safety Officer, Liaison

Officer, and other positions as required, who report

directly to the Incident Commander. They may have an

assistant or assistants, as needed.

December 2004 National Response Plan | 63

Appendix 1

Glossary of Key Terms
Common Operating Picture (COP). A broad view of

the overall situation as reflected by situation reports,

aerial photography, and other information or

intelligence.

Community Recovery. In the context of the NRP and

its annexes, the process of assessing the effects of an

Incident of National Significance, defining resources,

and developing and implementing a course of action to

restore and revitalize the socioeconomic and physical

structure of a community.

Consequence Management. Predominantly an

emergency management function and included

measures to protect public health and safety, restore

essential government services, and provide emergency

relief to governments, businesses, and individuals

affected by the consequences of terrorism. The

requirements of consequence management and crisis

management are combined in the NRP. See also Crisis

Management.

Contiguous Zone. The zone of the high seas, established

by the United States under Article 24 of the Convention

on the Territorial Sea and Contiguous Zone, that is

contiguous to the territorial sea and that extends 9 miles

seaward from the outer limit of the territorial sea.

Credible Threat. A potential terrorist threat that, based

on a threat assessment, is credible and likely to involve

WMD.

Crisis Management. Predominantly a law enforcement

function and included measures to identify, acquire,

and plan the use of resources needed to anticipate,

prevent, and/or resolve a threat or act of terrorism.

The requirements of consequence management and

crisis management are combined in the NRP. See also

Consequence Management.

Critical Infrastructures. Systems and assets, whether

physical or virtual, so vital to the United States that the

incapacity or destruction of such systems and assets

would have a debilitating impact on security, national

economic security, national public health or safety, or

any combination of those matters.

Cultural Resources. Cultural resources include historic

and prehistoric structures, archeological sites, cultural

landscapes, and museum collections.

Cyber. Pertaining to computers and their support

systems, such as servers, routers, and switches, that

support critical infrastructure.

Defense Support of Civil Authorities (DSCA). Refers

to DOD support, including Federal military forces, DOD

civilians and DOD contractor personnel, and DOD

agencies and components, for domestic emergencies

and for designated law enforcement and other activities.

Deputy. A fully qualified individual who, in the

absence of a superior, could be delegated the authority

to manage a functional operation or perform a specific

task. In some cases, a deputy could act as relief for a

superior and therefore must be fully qualified in the

position. Deputies can be assigned to the Incident

Commander, General Staff, and Branch Directors.

Disaster. See Major Disaster.

Disaster Recovery Center (DRC). A facility established

in a centralized location within or near the disaster area

at which disaster victims (individuals, families, or

businesses) apply for disaster aid.

District Response Group. Established in each

DHS/USCG District, the District Response Group is

primarily responsible for providing the OSC technical

assistance, personnel, and equipment during responses

typically involving marine zones.

Emergency. As defined by the Stafford Act, an

emergency is “any occasion or instance for which, in

the determination of the President, Federal assistance is

needed to supplement State and local efforts and

capabilities to save lives and to protect property and

public health and safety, or to lessen or avert the threat

of a catastrophe in any part of the United States.”

Emergency Operations Center (EOC). The physical

location at which the coordination of information and

resources to support domestic incident management

activities normally takes place. An EOC may be a

temporary facility or may be located in a more central

or permanently established facility, perhaps at a higher

level of organization within a jurisdiction. EOCs may

be organized by major functional disciplines (e.g., fire,

law enforcement, and medical services), by jurisdiction

(e.g., Federal, State, regional, county, city, tribal), or by

some combination thereof.

64 | National Response Plan December 2004
Emergency Operations Plan (EOP). The “steady-state”

plan maintained by various jurisdictional levels for

managing a wide variety of potential hazards.

Emergency Public Information. Information that is

disseminated primarily in anticipation of an emergency

or during an emergency. In addition to providing

situational information to the public, it also frequently

provides directive actions required to be taken by the

general public.

Emergency Response Provider. Includes Federal, State,

local, and tribal emergency public safety, law

enforcement, emergency response, emergency medical

(including hospital emergency facilities), and related

personnel, agencies, and authorities. (See section 2(6),

Homeland Security Act of 2002, Public Law 107-296,

116 Stat. 2135 (2002).) Also known as “emergency

responder.”

Emergency Support Function (ESF). A grouping of

government and certain private-sector capabilities into

an organizational structure to provide the support,

resources, program implementation, and services that

are most likely to be needed to save lives, protect

property and the environment, restore essential services

and critical infrastructure, and help victims and

communities return to normal, when feasible,

following domestic incidents. The ESFs serve as the

primary operational-level mechanism to provide

assistance to State, local, and tribal governments or to

Federal departments and agencies conducting missions

of primary Federal responsibility.

Emerging Infectious Diseases. New or recurring

infectious diseases of people, domestic animals, and/or

wildlife, including identification, etiology, pathogenesis,

zoonotic potential, and ecological impact.

Environment. Natural and cultural resources and

historic properties as those terms are defined in this

glossary and in relevant laws.

Environmental Response Team. Established by EPA,

the Environmental Response Team includes expertise in

biology, chemistry, hydrology, geology, and

engineering. The Environmental Response Team

provides technical advice and assistance to the OSC for

both planning and response to discharges and releases

of oil and hazardous substances into the environment.

Evacuation. Organized, phased, and supervised

withdrawal, dispersal, or removal of civilians from

dangerous or potentially dangerous areas, and their

reception and care in safe areas.

Facility Management. Facility selection and

acquisition, building services, information systems,

communications, safety and health, and physical

security.

Federal. Of or pertaining to the Federal Government

of the United States of America.

Federal Coordinating Officer (FCO). The Federal

officer who is appointed to manage Federal resource

support activities related to Stafford Act disasters and

emergencies. The FCO is responsible for coordinating

the timely delivery of Federal disaster assistance

resources and programs to the affected State and local

governments, individual victims, and the private sector.

Federal Emergency Communications Coordinator

(FECC). That person, assigned by GSA, who functions

as the principal Federal manager for emergency

telecommunications requirements in major disasters,

emergencies, and extraordinary situations, when

requested by the FCO or FRC.

Federal On-Scene Coordinator (FOSC or OSC). The

Federal official predesignated by the EPA or the USCG

to coordinate responses under subpart D of the NCP, or

the government official designated to coordinate and

direct removal actions under subpart E of the NCP.

Federal Resource Coordinator (FRC). The Federal

official appointed to manage Federal resource support

activities related to non-Stafford Act incidents. The FRC

is responsible for coordinating support from other

Federal departments and agencies using interagency

agreements and MOUs.

First Responder. Local and nongovernmental police,

fire, and emergency personnel who in the early stages

of an incident are responsible for the protection and

preservation of life, property, evidence, and the

environment, including emergency response providers

as defined in section 2 of the Homeland Security Act of

2002 (6 U.S.C. 101), as well as emergency

management, public health, clinical care, public works,

and other skilled support personnel (such as

December 2004 National Response Plan | 65
66 | National Response Plan December 2004

equipment operators) who provide immediate support

services during prevention, response, and recovery

operations. First responders may include personnel

from Federal, State, local, tribal, or nongovernmental

organizations.

Food and Nutrition Service (FNS) Disaster Task Force.

The Food Security Act of 1985 (Public Law 99-198)

requires the Secretary of Agriculture to establish a

Disaster Task Force to assist States in implementing and

operating various disaster food programs. The FNS

Disaster Task Force coordinates the overall FNS response

to disasters and emergencies. It operates under the

general direction of the Administrator of FNS.

Hazard. Something that is potentially dangerous or

harmful, often the root cause of an unwanted outcome.

Hazard Mitigation. Any cost-effective measure which

will reduce the potential for damage to a facility from a

disaster event.

Hazardous Material. For the purposes of ESF #1,

hazardous material is a substance or material, including

a hazardous substance, that has been determined by the

Secretary of Transportation to be capable of posing an

unreasonable risk to health, safety, and property when

transported in commerce, and which has been so

designated (see 49 CFR 171.8). For the purposes of

ESF #10 and the Oil and Hazardous Materials Incident

Annex, the term is intended to mean hazardous

substances, pollutants, and contaminants as defined by

the NCP.

Hazardous Substance. As defined by the NCP, any

substance designated pursuant to section 311(b)(2)(A)

of the Clean Water Act; any element, compound,

mixture, solution, or substance designated pursuant to

section 102 of the Comprehensive Environmental

Response, Compensation, and Liability Act (CERCLA);

any hazardous waste having the characteristics

identified under or listed pursuant to section 3001 of

the Solid Waste Disposal Act (but not including any

waste the regulation of which under the Solid Waste

Disposal Act (42 U.S.C. § 6901 et seq.) has been

suspended by act of Congress); any toxic pollutant

listed under section 307(a) of the Clean Water Act; any

hazardous air pollutant listed under section 112 of the

Clean Air Act (42 U.S.C. § 7521 et seq.); and any

imminently hazardous chemical substance or mixture

with respect to which the EPA Administrator has taken

action pursuant to section 7 of the Toxic Substances

Control Act (15 U.S.C. § 2601 et seq.).

Historic Property. Any prehistoric or historic district,

site, building, structure, or object included in or

eligible for inclusion in the National Register of

Historic Places, including artifacts, records, and remains

which are related to such district, site, building,

structure, or object [16 U.S.C. § 470(w)(5)].

Incident. An occurrence or event, natural or humancaused, that requires an emergency response to protect

life or property. Incidents can, for example, include

major disasters, emergencies, terrorist attacks, terrorist

threats, wildland and urban fires, floods, hazardous

materials spills, nuclear accidents, aircraft accidents,

earthquakes, hurricanes, tornadoes, tropical storms,

war-related disasters, public health and medical

emergencies, and other occurrences requiring an

emergency response.

Incident Action Plan. 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 Command Post (ICP). The field location at

which the primary tactical-level, 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 onscene 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 with a

common organizational structure, designed to aid in

the management of resources during incidents. ICS 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, or organized field-level

incident management operations.

Incident Commander (IC). The individual responsible

for all incident activities, including the development of

strategies and tactics and the ordering and 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. (See page 10 for

discussion on DOD forces.)

Incident Management Team (IMT). The Incident

Commander and appropriate Command and General

Staff personnel assigned to an incident.

Incident Mitigation. Actions taken during an incident

designed to minimize impacts or contain the damages

to property or the environment.

Incident of National Significance. Based on criteria

established in HSPD-5 (paragraph 4), an actual or

potential high-impact event that requires a coordinated

and effective response by and appropriate combination

of Federal, State, local, tribal, nongovernmental, and/or

private-sector entities in order to save lives and

minimize damage, and provide the basis for long-term

community recovery and mitigation activities.

Information Officer. See Public Information Officer.

Infrastructure. The manmade physical systems, assets,

projects, and structures, publicly and/or privately

owned, that are used by or provide benefit to the

public. Examples of infrastructure include utilities,

bridges, levees, drinking water systems, electrical

systems, communications systems, dams, sewage

systems, and roads.

Infrastructure Liaison. Assigned by DHS/IAIP, the

Infrastructure Liaison serves as the principal advisor to

the JFO Coordination Group regarding all national- and

regional-level critical infrastructure and key resources

incident-related issues.

Initial Actions. The actions taken by those responders

first to arrive at an incident site.

Initial Response. Resources initially committed to an

incident.

Initial Response Resources (IRR). Disaster support

commodities that may be pre-staged, in anticipation of

a catastrophic event, at a Federal facility close to a

disaster area for immediate application through an NRP

ESF operation. The initial response resources are

provided to victims and all levels of government

responders immediately after a disaster occurs. They are

designed to augment State and local capabilities.

DHS/EPR/FEMA Logistics Division stores and maintains

critically needed initial response commodities for

victims and responders and pre-positions supplies and

equipment when required. The initial response

resources include supplies (baby food, baby formula,

blankets, cots, diapers, meals ready-to-eat, plastic

sheeting, tents, and water) and equipment (emergency

generators, industrial ice-makers, mobile kitchen kits,

portable potties with service, portable showers, and

refrigerated vans).

In-Kind Donations. Donations other than cash

(usually materials or professional services) for disaster

survivors.

Inland Zone. As defined in the NCP, the environment

inland of the coastal zone excluding the Great Lakes

and specified ports and harbors on the inland rivers.

The term “coastal zone” delineates an area of Federal

responsibility for response action. Precise boundaries

are determined by EPA/USCG agreements and

identified in RCPs.

Insular Areas. Non-State possessions of the United

States. The insular areas include Guam, the

Commonwealth of the Northern Mariana Islands

(CNMI), American Samoa, the U.S.Virgin Islands, and

the former World War II Trust Territories now known as

the Federated States of Micronesia and the Republic of

the Marshall Islands. These last two entities, known as

Freely Associated States (FAS), are still connected with

the United States through the Compact of Free

Association.

Interagency Modeling and Atmospheric Assessment

Center (IMAAC). An interagency center responsible

for production, coordination, and dissemination of

consequence predictions for an airborne hazardous

material release. The IMAAC generates the single

Federal prediction of atmospheric dispersions and their

consequences utilizing the best available resources from

the Federal Government.

December 2004 National Response Plan | 67
Joint Field Office (JFO). A temporary Federal facility

established locally to provide a central point for Federal,

State, local, and tribal executives with responsibility for

incident oversight, direction, and/or assistance to

effectively coordinate protection, prevention,

preparedness, response, and recovery actions. The JFO

will combine the traditional functions of the JOC, the

FEMA DFO, and the JIC within a single Federal facility.

Joint Information Center (JIC). A facility established

to coordinate all incident-related 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.

Joint Information System (JIS). Integrates incident

information and public affairs into a cohesive

organization designed to provide consistent,

coordinated, timely information during a crisis or

incident operations. The mission of the JIS is to

provide a structure and system for developing and

delivering coordinated interagency messages;

developing, recommending, and executing public

information plans and strategies on behalf of the IC;

advising the IC concerning public affairs issues that

could affect a response effort; and controlling rumors

and inaccurate information that could undermine

public confidence in the emergency response effort.

Joint Operations Center (JOC). The JOC is the focal

point for all Federal investigative law enforcement

activities during a terrorist or potential terrorist

incident or any other significant criminal incident, and

is managed by the SFLEO. The JOC becomes a

component of the JFO when the NRP is activated.

Jurisdiction. A range or sphere of authority. Public

agencies have jurisdiction at an incident related to their

legal responsibilities and authorities. Jurisdictional

authority at an incident can be political or geographical

(e.g., city, county, tribal, State, or Federal boundary

lines) or functional (e.g., law enforcement, public

health).

Liaison Officer. A member of the Command Staff

responsible for coordinating with representatives from

cooperating and assisting agencies.

Local Government. A county, municipality, city, town,

township, local public authority, school district, special

district, intrastate district, council of governments

(regardless of whether the council of governments is

incorporated as a nonprofit corporation under State

law), regional or interstate government entity, or agency

or instrumentality of a local government; an Indian

tribe or authorized tribal organization or, in Alaska, a

Native Village or Alaska Regional Native Corporation; or

a rural community, unincorporated town or village, or

other public entity. (As defined in section 2(10) of the

Homeland Security Act of 2002, Public Law 107-296,

116 Stat. 2135, et seq. (2002).)

Long-Range Management Plan. Used by the FCO and

management team to address internal staffing,

organization, and team requirements.

Major Disaster. As defined by the Stafford Act, any

natural catastrophe (including any hurricane, tornado,

storm, high water, wind-driven water, tidal wave,

tsunami, earthquake, volcanic eruption, landslide,

mudslide, snowstorm, or drought) or, regardless of

cause, any fire, flood, or explosion, in any part of the

United States, which in the determination of the

President causes damage of sufficient severity and

magnitude to warrant major disaster assistance under

this act to supplement the efforts and available

resources of States, local governments, and disaster

relief organizations in alleviating the damage, loss,

hardship, or suffering caused thereby.

Materiel Management. Requisitioning and sourcing

(requirements processing); acquisition, asset visibility

(resource tracking), receipt, storage, and handling;

security and accountability; inventory, deployment,

issue, and distribution; and recovery, reuse, and

disposition.

Mission Assignment. The vehicle used by

DHS/EPR/FEMA to support Federal operations in a

Stafford Act major disaster or emergency declaration. It

orders immediate, short-term 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.

Mitigation. Activities designed to reduce or eliminate

risks to persons or property or to lessen the actual or

potential effects or consequences of an incident.

68 | National Response Plan December 2004
Mitigation measures may be implemented prior to,

during, or after an incident. Mitigation measures are

often developed in accordance with lessons learned from

prior incidents. Mitigation involves ongoing actions to

reduce exposure to, probability of, or potential loss from

hazards. Measures may include zoning and building

codes, floodplain buyouts, and analysis of hazard-related

data to determine where it is safe to build or locate

temporary facilities. Mitigation can include efforts to

educate governments, businesses, and the public on

measures they can take to reduce loss and injury.

Mobilization. The process and procedures used by all

organizations—Federal, State, local, and tribal—for

activating, assembling, and transporting all resources that

have been requested to respond to or support an incident.

Mobilization Center. An off-site temporary facility at

which response personnel and equipment are received

from the Point of Arrival and are pre-positioned for

deployment to an incident logistics base, to a local

Staging Area, or directly to an incident site, as required.

A mobilization center also provides temporary support

services, such as food and billeting, for response

personnel prior to their assignment, release, or

reassignment and serves as a place to out-process

following demobilization while awaiting transportation.

Multiagency Command Center (MACC). An

interagency coordination center established by

DHS/USSS during NSSEs as a component of the JFO.

The MACC serves as the focal point for interagency

security planning and coordination, including the

coordination of all NSSE-related information from

other intra-agency centers (e.g., police command posts,

Secret Service security rooms) and other interagency

centers (e.g., intelligence operations centers, joint

information centers).

Multiagency Coordination Entity. Functions within a

broader multiagency coordination system. It may

establish priorities among incidents and associated

resource allocations, deconflict agency policies, and

provide strategic guidance and direction to support

incident management activities.

Multiagency Coordination System. Provides the

architecture to support coordination for incident

prioritization, critical resource allocation,

communications systems integration, and information

coordination. The components of multiagency

coordination systems include facilities, equipment,

EOCs, specific multiagency coordination entities,

personnel, procedures, and communications. The

systems assist agencies and organizations to fully

integrate the subsystems of NIMS.

Multijurisdictional Incident. An incident requiring

action from multiple agencies that each have jurisdiction

to manage certain aspects of an incident. In ICS, these

incidents will be managed under Unified Command.

Mutual Aid Agreement. Written agreement between

agencies, organizations, and/or jurisdictions that they will

assist one another on request by furnishing personnel,

equipment, and/or expertise in a specified manner.

National. Of a nationwide character, including the

Federal, State, local, and tribal aspects of governance

and policy.

National Coordinating Center for Telecommunications.

A joint telecommunications industry–Federal

Government operation established to assist in the

initiation, coordination, restoration, and reconstitution

of NS/EP telecommunications services and facilities.

National Counterterrorism Center (NCTC). The NCTC

serves as the primary Federal organization for analyzing

and integrating all intelligence possessed or acquired by

the U.S. Government pertaining to terrorism and

counterterrorism, excepting purely domestic

counterterrorism information. The NCTC may, consistent

with applicable law, receive, retain, and disseminate

information from any Federal, State, or local government

or other source necessary to fulfill its responsibilities.

National Disaster Medical System (NDMS). A

coordinated partnership between DHS, HHS, DOD, and

the Department of Veterans Affairs established for the

purpose of responding to the needs of victims of a

public health emergency. NDMS provides medical

response assets and the movement of patients to health

care facilities where definitive medical care is received

when required.

National Incident Management System (NIMS). A

system mandated by HSPD-5 that provides a consistent,

nationwide approach for Federal, State, local, and tribal

governments; the private sector; and NGOs to work

December 2004 National Response Plan | 69
70 | National Response Plan December 2004

effectively and efficiently together to prepare for,

respond to, 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 ICS; 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.

National Infrastructure Coordinating Center (NICC).

Managed by the DHS Information Analysis and

Infrastructure Protection Directorate, the NICC

monitors the Nation’s critical infrastructure and key

resources on an ongoing basis. In the event of an

incident, the NICC provides a coordinating vehicle to

share information with critical infrastructure and key

resources information-sharing entities.

National Interagency Coordination Center (NICC).

The organization responsible for coordinating allocation

of resources to one or more coordination centers or

major fires within the Nation. Located in Boise, ID.

National Interagency Fire Center (NIFC). A facility

located in Boise, ID, that is jointly operated by several

Federal agencies and is dedicated to coordination,

logistical support, and improved weather services in

support of fire management operations throughout the

United States.

Natural Resources. Natural resources include land,

fish, wildlife, domesticated animals, plants, biota, and

water. Water means salt and fresh water, surface and

ground water, including water used for drinking,

irrigation, aquaculture, and recreational purposes, as

well as in its capacity as fish and wildlife habitat,

including coral reef ecosystems as defined in 16 U.S.C.

64501. Land means soil, surface and subsurface

minerals, and other terrestrial features.

National Response Center. A national communications

center for activities related to oil and hazardous substance

response actions. The National Response Center, located

at DHS/USCG Headquarters in Washington, DC, receives

and relays notices of oil and hazardous substances releases

to the appropriate Federal OSC.

National Response System. Pursuant to the NCP, the

mechanism for coordinating response actions by all

levels of government (40 CFR § 300.21) for oil and

hazardous substances spills and releases.

National Response Team (NRT). The NRT, comprised

of the 16 Federal agencies with major environmental

and public health responsibilities, is the primary

vehicle for coordinating Federal agency activities under

the NCP. The NRT carries out national planning and

response coordination and is the head of a highly

organized Federal oil and hazardous substance

emergency response network. EPA serves as the NRT

Chair, and DHS/USCG serves as Vice Chair.

National Security and Emergency Preparedness (NS/EP)

Telecommunications. NS/EP telecommunications

services are those used to maintain a state of readiness or

to respond to and manage any event or crisis (local,

national, or international) that causes or could cause

injury or harm to the population or damage to or loss of

property, or could degrade or threaten the NS/EP posture

of the United States.

National Special Security Event (NSSE). A designated

event that, by virtue of its political, economic, social, or

religious significance, may be the target of terrorism or

other criminal activity.

National Strike Force. The National Strike Force

consists of three strike teams established by DHS/USCG

on the Pacific, Atlantic, and Gulf coasts. The strike

teams can provide advice and technical assistance for

oil and hazardous substances removal, communications

support, special equipment, and services.

Nongovernmental Organization (NGO). A nonprofit

entity that is based on interests of its members,

individuals, or institutions and that is not created by a

government, but may work cooperatively with

government. Such organizations serve a public

purpose, not a private benefit. Examples of NGOs

include faith-based charity organizations and the

American Red Cross.

Nuclear Incident Response Team (NIRT). Created by

the Homeland Security Act to provide DHS with a

nuclear/radiological response capability. When

activated, the NIRT consists of specialized Federal

response teams drawn from DOE and/or EPA. These
teams may become DHS operational assets providing

technical expertise and equipment when activated

during a crisis or in response to a nuclear/radiological

incident as part of the DHS Federal response.

On-Scene Coordinator (OSC). See Federal On-Scene

Coordinator.

Pollutant or Contaminant. As defined in the NCP,

includes, but is not limited to, any element, substance,

compound, or mixture, including disease-causing

agents, which after release into the environment and

upon exposure, ingestion, inhalation, or assimilation

into any organism, either directly from the

environment or indirectly by ingestion through food

chains, will or may reasonably be anticipated to cause

death, disease, behavioral abnormalities, cancer, genetic

mutation, physiological malfunctions, or physical

deformations in such organisms or their offspring.

Preparedness. The range of deliberate, critical tasks

and activities necessary to build, sustain, and improve

the operational capability to prevent, protect against,

respond to, and recover from domestic incidents.

Preparedness is a continuous process involving efforts

at all levels of government and between government

and private-sector and nongovernmental organizations

to identify threats, determine vulnerabilities, and

identify required resources.

Prevention. Actions taken to avoid an incident or to

intervene to stop an incident from occurring.

Prevention involves actions taken to protect lives and

property. It involves applying intelligence and other

information to a range of activities that may include

such countermeasures as deterrence operations;

heightened inspections; improved surveillance and

security operations; investigations to determine the full

nature and source of the threat; public health and

agricultural surveillance and testing processes;

immunizations, isolation, or quarantine; and, as

appropriate, specific law enforcement operations aimed

at deterring, preempting, interdicting, or disrupting

illegal activity and apprehending potential perpetrators

and bringing them to justice.

Principal Federal Official (PFO). The Federal official

designated by the Secretary of Homeland Security to

act as his/her representative locally to oversee,

coordinate, and execute the Secretary’s incident

management responsibilities under HSPD-5 for

Incidents of National Significance.

Private Sector. Organizations and entities that are not

part of any governmental structure. Includes for-profit

and not-for-profit organizations, formal and informal

structures, commerce and industry, private emergency

response organizations, and private voluntary

organizations.

Public Assistance Program. The program administered

by FEMA that provides supplemental Federal disaster

grant assistance for debris removal and disposal,

emergency protective measures, and the repair,

replacement, or restoration of disaster-damaged,

publicly owned facilities and the facilities of certain

private nonprofit organizations.

Public Health. Protection, safety, improvement, and

interconnections of health and disease prevention

among people, domestic animals and wildlife.

Public Information Officer (PIO). A member of the

Command Staff responsible for interfacing with the

public and media or with other agencies with incidentrelated information requirements.

Public Works. Work, construction, physical facilities,

and services provided by governments for the benefit

and use of the public.

Radiological Emergency Response Teams (RERTs).

Teams provided by EPA’s Office of Radiation and

Indoor Air to support and respond to incidents or sites

containing radiological hazards. These teams provide

expertise in radiation monitoring, radionuclide

analyses, radiation health physics, and risk assessment.

RERTs can provide both mobile and fixed laboratory

support during a response.

Recovery. The development, coordination, and

execution of service- and site-restoration plans for

impacted communities and the reconstitution of

government operations and services through

individual, private-sector, nongovernmental, and public

assistance programs that: identify needs and define

resources; provide housing and promote restoration;

address long-term care and treatment of affected

December 2004 National Response Plan | 71
persons; implement additional measures for

community restoration; incorporate mitigation

measures and techniques, as feasible; evaluate the

incident to identify lessons learned; and develop

initiatives to mitigate the effects of future incidents.

Regional Emergency Transportation Coordinator

(RETCO). A senior-level executive from a DOT

operating administration who is predesignated by DOT

order to serve as the regional representative of the

Secretary of Transportation for emergency

transportation preparedness and response, including

oversight of ESF #1. Depending upon the nature and

extent of the disaster or major incident, the Secretary

may designate another official in this capacity.

Regional Response Teams (RRTs). Regional

counterparts to the National Response Team, the RRTs

comprise regional representatives of the Federal

agencies on the NRT and representatives of each State

within the region. The RRTs serve as planning and

preparedness bodies before a response, and provide

coordination and advice to the Federal OSC during

response actions.

Resources. Personnel and major items of equipment,

supplies, and facilities available or potentially available

for assignment to incident operations and for which

status is maintained. Resources are described by kind

and type and may be used in operational support or

supervisory capacities at an incident or at an EOC.

Response. Activities that address the short-term, direct

effects of an incident. Response includes immediate

actions to save lives, protect property, and meet basic

human needs. Response also includes the execution of

emergency operations plans and of incident mitigation

activities designed to limit the loss of life, personal

injury, property damage, and other unfavorable

outcomes. As indicated by the situation, response

activities include: applying intelligence and other

information to lessen the effects or consequences of an

incident; increased security operations; continuing

investigations into the nature and source of the threat;

ongoing public health and agricultural surveillance and

testing processes; immunizations, isolation, or

quarantine; and specific law enforcement operations

aimed at preempting, interdicting, or disrupting illegal

activity, and apprehending actual perpetrators and

bringing them to justice.

Senior Federal Official (SFO). An individual representing

a Federal department or agency with primary statutory

responsibility for incident management. SFOs utilize

existing authorities, expertise, and capabilities to aid in

management of the incident working in coordination

with other members of the JFO Coordination Group.

Shared Resources (SHARES) High Frequency Radio

Program. SHARES provides a single, interagency

emergency message handling system by bringing

together existing HF radio resources of Federal, State,

and industry organizations when normal

communications are destroyed or unavailable for the

transmission of NS/EP information.

Situation Assessment. The evaluation and

interpretation of information gathered from a variety

of sources (including weather information and

forecasts, computerized models, GIS data mapping,

remote sensing sources, ground surveys, etc.) that,

when communicated to emergency managers and

decisionmakers, can provide a basis for incident

management decisionmaking.

State. Any State of the United States, the District of

Columbia, the Commonwealth of Puerto Rico, the U.S.

Virgin Islands, Guam, American Samoa, the

Commonwealth of the Northern Mariana Islands, and

any possession of the United States. (As defined in

section 2(14) of the Homeland Security Act of 2002,

Public Law 107-296, 116 Stat. 2135, et seq. (2002).)

Strategic. Strategic elements of incident management

are characterized by continuous, long-term, high-level

planning by organizations headed by elected or other

senior officials. These elements involve the adoption of

long-range goals and objectives, the setting of

priorities, the establishment of budgets and other fiscal

decisions, policy development, and the application of

measures of performance or effectiveness.

Strategic Plan. A plan that addresses long-term issues

such as impact of weather forecasts, time-phased

resource requirements, and problems such as

permanent housing for displaced disaster victims,

environmental pollution, and infrastructure restoration.

Subject-Matter Expert (SME). An individual who is a

technical expert in a specific area or in performing a

specialized job, task, or skill.

72 | National Response Plan December 2004
Supervisor of Salvage and Diving (SUPSALV). A

salvage, search, and recovery operation established by

the Department of Navy. SUPSALV has extensive

experience to support response activities, including

specialized salvage, firefighting, and petroleum, oil, and

lubricants offloading. SUPSALV, when available, will

provide equipment for training exercises to support

national and regional contingency planning.

Telecommunications. The transmission, emission, or

reception of voice and/or data through any medium by

wire, radio, other electrical electromagnetic, or optical

means. Telecommunications includes all aspects of

transmitting information.

Telecommunications Service Priority (TSP) Program.

The NS/EP TSP Program is the regulatory,

administrative, and operational program authorizing

and providing for priority treatment (i.e., provisioning

and restoration) of NS/EP telecommunications services.

As such, it establishes the framework for NS/EP

telecommunications service vendors to provide, restore,

or otherwise act on a priority basis to ensure effective

NS/EP telecommunications services.

Terrorism. Any activity that (1) involves an act that (a)

is dangerous to human life or potentially destructive of

critical infrastructure or key resources; and (b) is a

violation of the criminal laws of the United States or of

any State or other subdivision of the United States; and

(2) appears to be intended (a) to intimidate or coerce a

civilian population; (b) to influence the policy of a

government by intimidation or coercion; or (c) to

affect the conduct of a government by mass

destruction, assassination, or kidnapping.

Threat. An indication of possible violence, harm, or

danger.

Transportation Management. Transportation

prioritizing, ordering, sourcing, and acquisition; timephasing plans; fleet management; and movement

coordination and tracking.

Tribe. Any Indian tribe, band, nation, or other

organized group or community, including any Alaskan

Native Village as defined in or established pursuant to

the Alaskan Native Claims Settlement Act (85 Stat. 688)

[43 U.S.C.A. and 1601 et seq.], that is recognized as

eligible for the special programs and services provided

by the United States to Indians because of their status

as Indians.

Unaffiliated Volunteer. An individual who is not

formally associated with a recognized voluntary

disaster relief organization; also known as a

“spontaneous” or “emergent” volunteer.

Unified Command. An application of ICS 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 to

establish their designated Incident Commanders at a

single ICP and to establish a common set of objectives

and strategies and a single Incident Action Plan. (See

page 10 for discussion on DOD forces.)

United States. The term “United States,” when used in a

geographic sense, means any State of the United States,

the District of Columbia, the Commonwealth of Puerto

Rico, the U.S.Virgin Islands, Guam, American Samoa, the

Commonwealth of the Northern Mariana Islands, any

possession of the United States, and any waters within

the jurisdiction of the United States. (As defined in

section 2(16) of the Homeland Security Act of 2002,

Public Law 107-296, 116 Stat. 2135, et seq. (2002).)

Unsolicited Goods. Donated items offered by and/or

sent to the incident area by the public, the private

sector, or other source, that have not been requested by

government or nonprofit disaster relief coordinators.

Urban Search and Rescue. Operational activities that

include locating, extricating, and providing on-site

medical treatment to victims trapped in collapsed

structures.

Volunteer. Any individual accepted to perform services

by an agency that has authority to accept volunteer

services when the individual performs services without

promise, expectation, or receipt of compensation for

services performed. (See, for example, 16 U.S.C. §

742f(c) and 29 CFR § 553.101.)

Volunteer and Donations Coordination Center.

Facility from which the Volunteer and Donations

Coordination Team operates. It is best situated in or

close by the State EOC for coordination purposes.

Requirements may include space for a phone bank,

December 2004 National Response Plan | 73
74 | National Response Plan December 2004

meeting space, and space for a team of specialists to

review and process offers.

Weapon of Mass Destruction (WMD). As defined in

Title 18, U.S.C. § 2332a: (1) any explosive, incendiary,

or poison gas, bomb, grenade, rocket having a

propellant charge of more than 4 ounces, or missile

having an explosive or incendiary charge of more than

one-quarter ounce, or mine or similar device; (2) any

weapon that is designed or intended to cause death or

serious bodily injury through the release,

dissemination, or impact of toxic or poisonous

chemicals or their precursors; (3) any weapon

involving a disease organism; or (4) any weapon that is

designed to release radiation or radioactivity at a level

dangerous to human life.

Wireless Priority Service (WPS). WPS allows

authorized NS/EP personnel to gain priority access to

the next available wireless radio channel to initiate calls

during an emergency when carrier channels may be

congested.
December 2004 National Response Plan | 75

Appendix 2

List of Acronyms

APHIS Animal and Plant Health 

Inspection Service

CBO Community-Based Organization

CDRG Catastrophic Disaster Response Group

CERCLA Comprehensive Environmental Response,

Compensation, and Liability Act

CERT Community Emergency Response Team

CFO Chief Financial Officer

CI/KR Critical Infrastructure/Key Resources

CMC Crisis Management Coordinator

CNMI Commonwealth of the Northern

Mariana Islands

CONPLAN U.S. Government Interagency Domestic

Terrorism Concept of Operations Plan

CSG Counterterrorism Security Group

DCE Defense Coordinating Element

DCO Defense Coordinating Officer

DEST Domestic Emergency Support Team

DFO Disaster Field Office

DHS Department of Homeland Security

DMAT Disaster Medical Assistance Team

DMORT Disaster Mortuary Operational

Response Team

DOC Department of Commerce

DOD Department of Defense

DOE Department of Energy

DOI Department of the Interior

DOJ Department of Justice

DOL Department of Labor

DOS Department of State

DOT Department of Transportation

DPA Defense Production Act

DRC Disaster Recovery Center

DRM Disaster Recovery Manager

DSCA Defense Support of Civil Authorities

DTRIM Domestic Threat Reduction and

Incident Management

EAS Emergency Assistance Personnel or

Emergency Alert System

EOC Emergency Operations Center

EPA Environmental Protection Agency

EPCRA Emergency Planning and 

Community Right-to-Know Act

EPLO Emergency Preparedness Liaison Officer

EPR Emergency Preparedness and Response

ERL Environmental Research Laboratories

ERT Environmental Response Team (EPA)

ERT-A Emergency Response Team—

Advance Element

ERT-N National Emergency Response Team

ESF Emergency Support Function

ESFLG Emergency Support Function 

Leaders Group

EST Emergency Support Team

FAS Freely Associated States

FBI Federal Bureau of Investigation

FCO Federal Coordinating Officer

FEMA Federal Emergency Management Agency

FIRST Federal Incident Response Support Team

FMC Federal Mobilization Center

FNS Food and Nutrition Service

FOC FEMA Operations Center

FOG Field Operations Guide

FRC Federal Resource Coordinator

FRERP Federal Radiological 

Emergency Response Plan

FRP Federal Response Plan
GAR Governor’s Authorized Representative

GIS Geographical Information System

GSA General Services Administration

HHS Department of Health 

and Human Services

HQ Headquarters

HSAS Homeland Security Advisory System

HSC Homeland Security Council

HSOC Homeland Security Operations Center

HSPD Homeland Security Presidential Directive

IAIP Information Analysis and 

Infrastructure Protection

IC Incident Command

ICP Incident Command Post

ICS Incident Command System

IIMG Interagency Incident Management Group

IMT Incident Management Team

INRP Initial National Response Plan

IOF Interim Operating Facility

ISAO Information-Sharing and 

Analysis Organization

JFO Joint Field Office

JIC Joint Information Center

JIS Joint Information System

JOC Joint Operations Center

JTF Joint Task Force

JTTF Joint Terrorism Task Force

MAC Entity Multiagency Coordinating Entity

MACC Multiagency Command Center

MERS Mobile Emergency Response Support

MOA Memorandum of Agreement

MOU Memorandum of Understanding

NAHERC National Animal Health 

Emergency Response Corps

NASA National Aeronautics 

and Space Administration

NAWAS National Warning System

NCP National Oil and Hazardous Substances

Pollution Contingency Plan

NCR National Capital Region

NCS National Communications System

NCTC National Counterterrorism Center

NDMS National Disaster Medical System

NEP National Exercise Program

NGO Nongovernmental Organization

NICC National Infrastructure 

Coordinating Center

NICC National Interagency 

Coordination Center

NIMS National Incident Management System

NIPP National Infrastructure Protection Plan

NIRT Nuclear Incident Response Team

NJTTF National Joint Terrorism Task Force

NMRT National Medical Response Team

NOAA National Oceanic and 

Atmospheric Administration

NRC Nuclear Regulatory Commission

NRCC National Response Coordination Center

NRCS Natural Resources Conservation Service

NRP National Response Plan

NRT National Response Team

NSC National Security Council

NSP National Search and Rescue Plan

NSSE National Special Security Event

NVOAD National Voluntary Organizations

Active in Disaster

NWCG National Wildland Coordinating Group

OIA Office of the Assistant Secretary for

Information Analysis

OSC On-Scene Coordinator

76 | National Response Plan December 2004
OSHA Occupational Safety 

and Health Administration

OSLGCP Office of State and Local Government

Coordination and Preparedness

PCC Policy Coordination Committee

PDA Preliminary Damage Assessment

PDD Presidential Decision Directive

PFO Principal Federal Official

POC Point of Contact

RA Reimbursable Agreement

RAMP Remedial Action Management Program

RCP Regional Contingency Plan

RCRA Resource Conservation and Recovery Act

REPLO Regional Emergency 

Preparedness Liaison Officer

RFI Request for Information

RISC Regional Interagency 

Steering Committee

RRCC Regional Response Coordination Center

RRT Regional Response Team

ROC Regional Operations Center

SAC Special Agent-in-Charge

SAR Search and Rescue

SCC Secretary’s Command Center (HHS)

SCO State Coordinating Officer

SFLEO Senior Federal Law Enforcement Official

SFO Senior Federal Official

SIOC Strategic Information 

and Operations Center

SOG Standard Operating Guideline

SOP Standard Operating Procedure

START Scientific and Technical Advisory 

and Response Team

TSA Transportation Security Administration

TSC Terrorist Screening Center

US&R Urban Search and Rescue

USACE U.S. Army Corps of Engineers

USCG U.S. Coast Guard

USDA U.S. Department of Agriculture

USSS U.S. Secret Service

VMAT Veterinarian Medical Assistance Team 

WAWAS Washington Area Warning System

WMD Weapons of Mass Destruction

December 2004 National Response Plan | 77
The principal authorities that guide the structure,

development, and implementation of the NRP are statutes,

Executive orders, and Presidential directives. Congress has

provided the broad statutory authority necessary for the

NRP, and the President has issued Executive orders and

Presidential directives to supply authority and policy

direction to departments and agencies of the Executive

Branch. Among the major statutes, orders, and directives

relevant to the NRP are those summarized below.

A. Statutes and Regulations

1. The Homeland Security Act of 2002, Pub. Law 107-

296, 116 Stat. 2135 (2002) (codified predominantly

at 6 U.S.C. §§ 101-557 and in other scattered

sections of the U.S.C.), established the Department of

Homeland Security with the mandate and legal

authority to protect the American people from the

continuing threat of terrorism. In the act, Congress

assigned DHS the primary missions to:

■ Prevent terrorist attacks within the United States;

■ Reduce the vulnerability of the United States to

terrorism at home;

■ Minimize the damage and assist in the recovery

from terrorist attacks that occur; and

■ Act as the focal point regarding natural and

manmade crises and emergency planning.

The Homeland Security Act gives the Secretary of

Homeland Security full authority and control over the

Department and the duties and activities performed

by its personnel, and it vests the Secretary with the

broad authority necessary to fulfill the Department’s

statutory mission to protect the American homeland.

This statutory authority, combined with the

President’s direction in HSPD-5, supports the NRP’s

unified, effective approach to domestic prevention,

preparedness, response, and recovery activities.

Responsibilities in the Homeland Security Act of

particular relevance to the development and

execution of the NRP include the following:

a. Preparedness of the United States for acts of

terrorism. Executed through the DHS OSLGCP,

this responsibility includes coordinating

preparedness efforts at the Federal level, and

working with State, local, tribal, parish, and

private-sector emergency response providers on

matters pertaining to combating terrorism.

b.Response to terrorist attacks, major disasters, and

other emergencies. Executed through the

Directorate of Emergency Preparedness and

Response, this responsibility includes:

■ Consolidating existing Federal emergency

response plans into a single, coordinated

national response plan;

■ Building a comprehensive national incident

management system to respond to such attacks

and disasters;

■ Ensuring the effectiveness of emergency

response providers to terrorist attacks, major

disasters, and other emergencies;

■ Providing the Federal Government’s response

to terrorist attacks, major disasters, and

emergencies, including managing such

response; and

■ Coordinating Federal response resources in the

event of a terrorist attack, major disaster, or

emergency.

c. Coordination of homeland security programs

with State and local government personnel,

agencies, and authorities and with the private

sector. Executed through the DHS OSLGCP and

the Private Sector Office, this responsibility

includes:

■ Coordinating to ensure adequate planning,

training, and exercise activities;

■ Coordinating and consolidating appropriate

Federal Government communications and

systems of communications; and

■ Distributing or coordinating the distribution of

warnings and information.

d.Risk analysis and risk management. DHS/IAIP

has primary authority for threat and event risk

analysis and risk management within DHS,

although other DHS organizations—such as the

U.S. Secret Service, the OSLGCP, and the Border

and Transportation Security Directorate—also

engage in risk management. DHS/IAIP

responsibilities include:

Appendix 3

Authorities and References

78 | National Response Plan December 2004
■ Analyzing and integrating information from all

available sources to identify, assess, detect, and

understand terrorist threats against the United

States;

■ Carrying out comprehensive assessments of the

vulnerabilities of the key resources and critical

infrastructure, including risk assessments to

determine the risks posed by particular types

of terrorist attacks within the United States;

■ Identifying priorities for and recommending

protective and support measures for such

infrastructure by all concerned;

■ Developing a comprehensive national plan (the

National Infrastructure Protection Plan (NIPP))

for securing critical infrastructure and key

resources, such as telecommunications and

power; and

■ Conducting risk assessments and vulnerability

assessments after other agencies have

conducted those studies and ranked top items

based on those studies.

e. Preventing the entry of terrorists and the

instruments of terrorism into the United States.

Executed through the Border and Transportation

Security Directorate, this responsibility includes:

■ Securing the borders, territorial waters, ports,

terminals, waterways, and air, land, and sea

transportation systems of the United States; and

■ Carrying out immigration enforcement

functions.

2. The Robert T. Stafford Disaster Relief and Emergency

Assistance Act, 93 Pub. L. No. 288, 88 Stat. 143

(1974) (codified as amended at 42 U.S.C. §§ 5121-

5206, and scattered sections of 12 U.S.C., 16 U.S.C.,

20 U.S.C., 26 U.S.C., 38 U.S.C. (2002)), establishes the

programs and processes for the Federal Government

to provide disaster and emergency assistance to States,

local governments, tribal nations, individuals, and

qualified private nonprofit organizations. The

provisions of the Stafford Act cover all hazards

including natural disasters and terrorist events.

Relevant provisions of the Stafford Act include a

process for Governors to request Federal disaster and

emergency assistance from the President. The

President may declare a major disaster or emergency:

■ If an event is beyond the combined response

capabilities of the State and affected local

governments; and

■ If, based on the findings of a joint Federal-Statelocal PDA, the damages are of sufficient severity

and magnitude to warrant assistance under the

act. (Note: In a particularly fast-moving or

clearly devastating disaster, DHS/EPR/FEMA may

defer the PDA process until after the declaration.)

a. If an emergency involves a subject area for which

the Federal Government exercises exclusive or

preeminent responsibility and authority, the

President may unilaterally direct the provision of

emergency assistance under the Stafford Act. The

Governor of the affected State will be consulted

if practicable.

b.DHS/EPR/FEMA can pre-deploy personnel and

equipment in advance of an imminent Stafford

Act declaration to reduce immediate threats to

life, property, and public health and safety, and to

improve the timeliness of disaster response.

c. During the immediate aftermath of an incident

which may ultimately qualify for assistance under

the Stafford Act, the Governor of the State in which

such incident occurred may request the President

to direct the Secretary of Defense to utilize the

resources of the DOD for the purpose of

performing on public and private lands any

emergency work that is made necessary by such

incident and that is essential for the preservation of

life and property. If the President determines that

such work is essential for the preservation of life

and property, the President shall grant such request

to the extent the President determines practical.

Such emergency work may only be carried out for

a period not to exceed 10 days.

d.The Stafford Act directs appointment of an FCO

by the President. The FCO is designated by the

DHS Under Secretary for Emergency Preparedness

and Response to coordinate the delivery of

Federal assistance to the affected State, local, and

tribal governments and disaster victims.

e. Federal agencies must avoid duplicating resources

and benefits for disaster victims. Disaster victims

are responsible for repayment of Federal assistance

duplicated by private insurance, or other Federal

programs, or when they have been otherwise

compensated for their disaster-related losses.

December 2004 National Response Plan | 79
f. All authorities under the Stafford Act granted to the

Secretary of Homeland Security in the Homeland

Security Act have been redelegated to the Under

Secretary of EPR through Delegation No. 9001.

3. The Public Health Security and Bioterrorism

Preparedness and Response Act of 2002, Pub. L. No.

107-188, 116 Stat. 294 (2002) (codified in

scattered sections of 7 U.S.C., 18 U.S.C., 21 U.S.C.,

29 U.S.C., 38 U.S.C., 42 U.S.C., and 47 U.S.C.

(2002)), is designed to improve the ability of the

United States to prevent, prepare for, and respond to

bioterrorism and other public health emergencies.

Key provisions of the act, 42 U.S.C. § 247d and §

300hh among others, address the development of a

national preparedness plan by HHS designed to

provide effective assistance to State and local

governments in the event of bioterrorism or other

public health emergencies; operation of the National

Disaster Medical System to mobilize and address

public health emergencies; grant programs for the

education and training of public health professionals

and improving State, local, and hospital preparedness

for and response to bioterrorism and other public

health emergencies; streamlining and clarifying

communicable disease quarantine provisions;

enhancing controls on dangerous biological agents

and toxins; and protecting the safety and security of

food and drug supplies.

4. The Defense Production Act of 1950, 64 Stat. 798

(1950) (codified as amended by the Defense

Production Act Reauthorization of 2003, Pub. L.

108-195, 117 Stat. 2892 (2003) at 50 U.S.C. app.

§§ 2061-2170 (2002)), is the primary authority

to ensure the timely availability of resources for

national defense and civil emergency preparedness

and response. Among other things, the DPA

authorizes the President to demand that companies

accept and give priority to government contracts

that the President “deems necessary or appropriate

to promote the national defense.” The DPA defines

“national defense” to include critical infrastructure

protection and restoration, as well as activities

authorized by the emergency preparedness sections

of the Stafford Act. Consequently, DPA authorities

are available for activities and measures undertaken

in preparation for, during, or following a natural

disaster or accidental or man-caused event. The

Department of Commerce has redelegated DPA

authority under Executive Order 12919, National

Defense Industrial Resource Preparedness, June 7,

1994, as amended, to the Secretary of Homeland

Security to place and, upon application, to

authorize State and local governments to place

priority-rated contracts in support of Federal, State,

and local emergency preparedness activities.

5. The Economy Act, 31 U.S.C. §§ 1535-1536

(2002), authorizes Federal agencies to provide

goods or services on a reimbursable basis to other

Federal agencies when more specific statutory

authority to do so does not exist.

6. The Posse Comitatus Act, 18 U.S.C. § 1385 (2002),

prohibits the use of the Army or the Air Force for

law enforcement purposes, except as otherwise

authorized by the Constitution or statute. This

prohibition applies to Navy and Marine Corps

personnel as a matter of DOD policy. The primary

prohibition of the Posse Comitatus Act is against

direct involvement by active duty military personnel

(to include Reservists on active duty and National

Guard personnel in Federal service) in traditional

law enforcement activities (to include interdiction

of vehicle, vessel, aircraft, or other similar activity;

directing traffic; search or seizure; an arrest,

apprehension, stop and frisk, or similar activity).

(Note exception under the Insurrection Statutes.)

Exceptions to the Posse Comitatus Act are found in

10 U.S.C. §§ 331-335 (2002) and other statutes.

7. The National Emergencies Act, 50 U.S.C. §§ 1601-

1651 (2003), establishes procedures for Presidential

declaration and termination of national emergencies.

The act requires the President to identify the specific

provision of law under which he or she will act in

dealing with a declared national emergency and

contains a sunset provision requiring the President

to renew a declaration of national emergency to

prevent its automatic expiration. The Presidential

declaration of a national emergency under the act is

a prerequisite to exercising any special or

extraordinary powers authorized by statute for use

in the event of national emergency.

8. The Comprehensive Environmental Response,

Compensation, and Liability Act, 42 U.S.C. §§

9601-9675 (2002), and the Federal Water

Pollution Control Act (Clean Water Act), 33 U.S.C.

80 | National Response Plan December 2004
§§ 1251-1387 (2002), established broad Federal

authority to respond to releases or threats of

releases of hazardous substances and pollutants or

contaminants that may present an imminent and

substantial danger to public health or welfare and

to discharges of oil. The National Oil and

Hazardous Substances Pollution Contingency

Plan, 40 CFR Part 300 (2003), was developed to

ensure coordinated and integrated response by

departments and agencies of the Federal

Government to prevent, minimize, or mitigate a

threat to public health or welfare posed by

discharges of oil and releases of hazardous

substances, pollutants, and contaminants.

9. The Cooperative Forestry Assistance Act of 1978, 16

U.S.C. §§ 2101-2114 (2002), authorizes the Secretary

of Agriculture to assist in the prevention and control

of rural fires, and to provide prompt assistance

whenever a rural fire emergency overwhelms, or

threatens to overwhelm, the firefighting capabilities of

the affected State or rural area.

10. The Communications Act of 1934, 47 U.S.C. §§

151-615b (2002), provides the authority to grant

special temporary authority on an expedited basis

to operate radio frequency devices. It would serve

as the basis for obtaining a temporary permit to

establish a radio station to be run by a Federal

agency and broadcast public service

announcements during the immediate aftermath of

an emergency or major disaster. 47 U.S.C. § 606

(2002) provides the authority for the NCS to

engage in emergency response, restoration, and

recovery of the telecommunications infrastructure.

11. The Insurrection Act, 10 U.S.C. §§ 331-335

(2002). Recognizing that the primary responsibility

for protecting life and property and maintaining law

and order in the civilian community is vested in

State and local governments, the Insurrection

Statutes authorize the President to direct the armed

forces to enforce the law to suppress insurrections

and domestic violence. Military forces may be used

to restore order, prevent looting, and engage in

other law enforcement activities.

12. The Defense Against Weapons of Mass Destruction

Act, 50 U.S.C. §§ 2301-2368 (2003), is intended to

enhance the capability of the Federal Government to

prevent and respond to terrorist incidents involving

WMD. Congress has directed that DOD provide

certain expert advice to Federal, State, and local

agencies with regard to WMD, to include domestic

terrorism rapid response teams, training in emergency

response to the use or threat of use of WMD, and a

program of testing and improving the response of

civil agencies to biological and chemical emergencies.

13. Emergencies Involving Chemical or Biological

Weapons. Pursuant to 10 U.S.C. § 382 (2002), in

response to an emergency involving biological or

chemical WMD that is beyond the capabilities of

civilian authorities to handle, the Attorney General

may request DOD assistance directly. Assistance that

may be provided includes identifying, monitoring,

containing, disabling, and disposing of the weapon.

Direct law enforcement assistance—such as conducting an arrest, searching or seizing evidence of criminal violations, or direct participation in the collection

of intelligence for law enforcement purposes—is not

authorized unless such assistance is necessary for the

immediate protection of human life and civilian law

enforcement officials are not capable of taking the

action, and the action is otherwise authorized.

14. Emergencies Involving Nuclear Materials. In

emergencies involving nuclear materials, 18 U.S.C. §

831(e)(2002) authorizes the Attorney General to

request DOD law enforcement assistance—including

the authority to arrest and conduct searches, without

violating the Posse Comitatus Act—when both the

Attorney General and Secretary of Defense agree that

an “emergency situation” exists and the Secretary of

Defense determines that the requested assistance will

not impede military readiness. An emergency

situation is defined as a circumstance that poses a

serious threat to the United States in which (1)

enforcement of the law would be seriously impaired

if the assistance were not provided, and (2) civilian

law enforcement personnel are not capable of

enforcing the law. In addition, the statute authorizes

DOD personnel to engage in “such other activity as

is incident to the enforcement of this section, or to

the protection of persons or property from conduct

that violates this section.”

15. Volunteer Services. There are statutory exceptions

to the general statutory prohibition against accepting

voluntary services under 31 U.S.C. § 1342 (2002)

December 2004 National Response Plan | 81
that can be used to accept the assistance of volunteer

workers. Such services may be accepted in

“emergencies involving the safety of human life or

the protection of property.” Additionally, provisions

of the Stafford Act, 42 U.S.C. §§ 5152(a), 5170a(2)

(2002), authorize the President to, with their

consent, use the personnel of private disaster relief

organizations and to coordinate their activities.

Under the Congressional Charter of 1905, 36

U.S.C. §§ 300101-300111 (2002), the American

Red Cross and its chapters are a single national

corporation. The Charter mandates that the

American Red Cross maintain a system of domestic

and international disaster relief. The American Red

Cross qualifies as a nonprofit organization under

section 501(c)(3) of the Internal Revenue code.

16. The Public Health Service Act, 42 U.S.C. §§ 201 et

seq. Among other things, this act provides that the

Secretary of HHS may declare a public health

emergency under certain circumstances (see 42 U.S.C.

§ 247d), and that the Secretary is authorized to

develop and take such action as may be necessary to

implement a plan under which the personnel,

equipment, medical supplies, and other resources of

the Department may be effectively used to control

epidemics of any disease or condition and to meet

other health emergencies and problems. (See 42

U.S.C. § 243.) The Public Health Service Act

authorizes the Secretary to declare a public health

emergency (42 U.S.C. 247d) and to prepare for and

respond to public health emergencies (42 U.S.C.

300hh). The Secretary is further empowered to

extend temporary assistance to States or localities to

meet health emergencies. During an emergency

proclaimed by the President, the President has broad

authority to direct the services of the Public Health

Service (42 U.S.C. § 217). Under that section, the

President is authorized to “utilize the [Public Health]

Service to such extent and in such manner as shall in

his judgment promote the public interest.”

Additionally, under 42 U.S.C. § 264, the Secretary is

authorized to make and enforce quarantine regulations

“necessary to prevent the introduction, transmission,

or spread of communicable diseases” from foreign

countries into the States or possessions, or from one

State or possession to another. The diseases for which

a person may be subject to quarantine must be

specified by the President through an Executive order.

17. The Veterans Affairs Emergency Preparedness Act of

2002, Pub. L. No. 107-287, 116 Stat. 2024 (2002)

(amending and codifying various sections of 38

U.S.C.). 38 U.S.C. § 1785 (2003), if funded, directs

the VA and DOD to develop training programs for

current health-care personnel and those

emergency/medical personnel in training in the

containment of nuclear, biological, and chemical

attacks and treatment of casualties. It authorizes the

Secretary of Veterans Affairs to furnish hospital care

and medical services to individuals responding to,

involved in, or otherwise affected by a disaster or

emergency during and immediately following a

disaster or emergency declared by the President

under the Robert T. Stafford Disaster Relief and

Emergency Assistance Act, or a disaster or emergency

in which the NDMS is activated.

18. The Atomic Energy Act of 1954, 42 U.S.C. §§ 2011-

2297 (2003), and the Energy Reorganization Act of

1974, 5 U.S.C. §§ 5313-5316, 42 U.S.C. §§ 5801-

5891 (2002), provide the statutory authority for

both the DOE and the NRC, and the foundation for

NRC regulation of the Nation’s civilian use of

byproduct, source, and special nuclear materials to

ensure adequate protection of public health and

safety, to promote the common defense and security,

and to protect the environment.

19. The Price-Anderson Amendments Act of 1988, Pub.

L. No. 100-408, 102 Stat. 1066 (1988) (amending

the Atomic Energy Act of 1954 and codified at 42

U.S.C. §§ 2014, 2210, 2273, 2282a (2003)),

provides for indemnification of governments and

individuals affected by nuclear incidents.

20. Furnishing of Health-Care Services to Members of

the Armed Forces during a War or National

Emergency, 38 U.S.C. § 8111A (2002). During and

immediately following a period of war, or a period

of national emergency declared by the President or

the Congress that involves the use of the Armed

Forces in armed conflict, the Secretary of Veterans

Affairs may furnish hospital care, nursing home care,

and medical services to members of the Armed

Forces on active duty. The Secretary may give a

higher priority to the furnishing of care and services

to active duty Armed Forces than others in medical

facilities for the Department with the exception of

veterans with service-connected disabilities.

82 | National Response Plan December 2004
21. The Resource Conservation and Recovery Act of

1976, 42 U.S.C. §§ 6901-6986 (2002), which was

passed as an amendment of the Solid Waste Disposal

Act of 1965, Pub. L. 89-272, 79 Stat. 997 (1965),

gave the EPA the authority to control hazardous waste

from “cradle to grave.” This includes the generation,

transportation, treatment, storage, and disposal of

hazardous waste. RCRA also set forth a framework

for the management of nonhazardous wastes.

22. The Occupational Safety and Health Act, 29 U.S.C.

§§ 651-678 (2002), among other things, assures

safe and healthful working conditions for working

men and women by authorizing enforcement of the

standards developed under the act; by assisting and

encouraging the States in their efforts to assure safe

and healthful working conditions; and by providing

for research, information, education, and training in

the field of occupational safety and health.

23. The Maritime Transportation Security Act, Pub. L.

No. 107-295, 116 Stat. 2064 (2002) (codified at 46

U.S.C. §§ 70102-70117 and scattered sections of the

U.S.C.), requires sectors of the maritime industry to

implement measures designed to protect America’s

ports and waterways from a terrorist attack.

24. Flood Control and Coastal Emergencies, 33 U.S.C. §

701n (2002) (commonly referred to as Public Law

84-99), authorizes the USACE an emergency fund

for preparation for emergency response to natural

disasters, flood fighting and rescue operations,

rehabilitation of flood control and hurricane

protection structures, temporary restoration of

essential public facilities and services, advance

protective measures, and provision of emergency

supplies of water. The USACE receives funding for

such activities under this authority from the Energy

and Water Development Appropriation.

25. The Oil Pollution Act of 1990, Pub. L. No. 101-

380, 104 Stat. 484 (1990) (codified as amended at

33 U.S.C. §§ 1203, 1223, 1321, 2701-2761 and

various other sections of the U.S.C. (2002)),

improves the Nation’s ability to prevent and

respond to oil spills by establishing provisions that

expand the Federal Government’s ability and

provides the money and personnel necessary to

respond to oil spills. The act also created the

national Oil Spill Liability Trust Fund.

26. The Clean Air Act, 42 U.S.C. §§ 7401-7671q

(2002) and 40 CFR § 80.73 (2003). The EPA may

temporarily permit a refiner, importer, or blender

to distribute nonconforming gasoline in

appropriate extreme or unusual circumstances

(e.g., an Act of God) that could not have been

avoided. EPA may seek DOE’s advice on fuel supply

situations when deciding whether to grant a

request to distribute nonconforming gasoline.

27. The Public Utilities Regulatory Policies Act of 1978,

Pub. L. No. 95-617, 92 Stat. 3117 (1978) (codified

at scattered sections of 15 U.S.C., 16 U.S.C., 30 U.S.C.,

42 U.S.C., 43 U.S.C. (2002)), and the Powerplant

and Industrial Fuel Use Act of 1978, Pub. L. No. 95-

620, 92 Stat. 3289 (1978) (codified as amended at

42 U.S.C. §§ 8301-8484 (2002)). The President has

authority to prohibit any powerplant or major fuelburning installation from using natural gas or

petroleum as a primary fuel during an emergency.

28. The Federal Power Act, 16 U.S.C. §§ 791a-828c,

824a(c) (2002), 10 CFR § 205.370 (2003). The

Secretary of Energy has authority in an emergency to

order temporary interconnections of facilities and/or

the generation and delivery of electric power.

29. The Department of Energy Organization Act, Pub.

L. No. 95-91, 91 Stat. 567 (1977) (codified

predominantly at 42 U.S.C. §§ 7101-7385o

(2002)), and the Federal Power Act, 16 U.S.C. §§

791a-828c (2002), 10 CFR §§ 205.350, 205.353

(2003). DOE has authority to obtain current

information regarding emergency situations on the

electric supply systems in the United States.

30. The Department of Energy Organization Act, Pub.

L. No. 95-91, 91 Stat. 567 (1977) (codified

predominantly at 42 U.S.C. §§ 7101-7385o

(2002)), 10 CFR §§ 205.350, 205.353 (2003), and

the Federal Energy Administration Act of 1974, 15

U.S.C. §§ 761-790h (2002). DOE and the National

Association of State Energy Officials (NASEO) have

agreed that DOE will develop, maintain, and

distribute a contact list of State and Federal

individuals responsible for energy market assessment

and energy emergency responses, and that the States

will participate in the effort by providing timely

assessments of energy markets to DOE and other

States in the event of an energy supply disruption.

December 2004 National Response Plan | 83
84 | National Response Plan December 2004

31. The Energy Policy and Conservation Act, 42 U.S.C.

§§ 6201-6422 (2002), as amended by the Energy

Policy Act of 1992, Pub. L. No. 102-486, 106 Stat.

2776 (1992) (as amended and codified in

scattered sections of the U.S.C.). The President may,

in an emergency, order Federal buildings to close

and/or conserve energy.

32. Transportation of Hazardous Material, 49 U.S.C.

§§ 5101-5127 (2002). Improves the regulatory

and enforcement authority of the Secretary of

Transportation to provide adequate protection

against the risks to life and property inherent in the

transportation of hazardous material in commerce.

33. The Ports and Waterways Safety Act of 1978, Pub.

L. No. 95-474, 92 Stat. 1471 (1978) (amending

Pub. L. No. 92-340 and codified at 33 U.S.C. §§

1222-1232 and 46 U.S.C. §§ 214, 391a (2002)).

The Secretary of Homeland Security has authority

to establish vessel traffic systems for ports, harbors,

and other navigable waterways, and to control

vessel traffic in areas determined to be hazardous

(e.g., due to vessel congestion). In such emergency

situations, DOE may be asked to advise the U.S.

Coast Guard on “priority” vessel movements to

expedite delivery of needed energy supplies.

34. The Energy Policy and Conservation Act, 42 U.S.C.

§§ 6231-6247 (2002). DOE is authorized to

create and maintain a Strategic Petroleum Reserve

(SPR) and the President is authorized to order a

drawdown of the Reserve in emergency

circumstances defined in the act.

35. The Energy Policy and Conservation Act, 42 U.S.C.

§§ 6250c (2002). DOE is authorized to create and

maintain a Northeast Home Heating Oil Reserve

and the President is authorized to order a

drawdown of the reserve in emergency

circumstances defined in the act.

36. The Natural Gas Policy Act of 1978, 15 U.S.C. §§

3301-3432 (2002). DOE can order any interstate

pipeline or local distribution company served by

an interstate pipeline to allocate natural gas in

order to assist in meeting the needs of highpriority consumers during a natural gas emergency.

37. The Powerplant and Industrial Fuel Use Act of

1978, 42 U.S.C. §§ 8301-8484 (2002). The

President has authority to allocate coal (and require

the transportation of coal) for the use of any

powerplant or major fuel-burning installation

during an energy emergency.

38. The Low Income Home Energy Assistance Act of

1981, 42 U.S.C. §§ 8621-8629 (2002). HHS has

discretionary funds available for distribution under

the Low Income Home Energy Assistance Program

(LIHEAP), according to the criteria that relate to

the type of emergency that precipitates their need.

DOE may advise HHS on the fuel supply situation

for such emergency funding.

39. The Small Business Act, 15 U.S.C. §§ 631-651e

(2002). The mission of the Small Business

Administration is to maintain and strengthen the

Nation’s economy by aiding, counseling, assisting, and

protecting the interests of small businesses and by

helping families and businesses recover from incidents

such as major disasters, emergencies, and catastrophes.

40. The Immigration Emergency Fund (IEF) was

created by section 404(b)(1) of the Immigration and

Nationality Act. The IEF can be drawn upon to

increase INS’s enforcement activities, and to

reimburse States and localities in providing assistance

as requested by the Secretary of the DHS in meeting

an immigration emergency declared by the President.

41. The Animal Health Protection Act of 2002,

7 U.S.C. 8310, consolidates all of the animal quarantine

and related laws and replaces them with one flexible

statutory framework. This act allows APHIS Veterinary

Services to act swiftly and decisively to protect U.S.

animal health from a foreign pest or disease.

42. 28 CFR § 0.85 designates the FBI as the agency

with primary responsibility for investigating all

crimes for which it has primary or concurrent

jurisdiction and which involve terrorist activities or

acts in preparation of terrorist activities within the

statutory jurisdiction of the United States. This

would include the collection, coordination, analysis,

management, and dissemination of intelligence and

criminal information as appropriate.
December 2004 National Response Plan | 85

B. Executive Orders

1. Executive Order 12148, 44 Fed. Reg. 43239

(1979), as amended by Exec. Order 13286, 68 Fed.

Reg. 10619 (2003), designates DHS as the primary

agency for coordination of Federal disaster relief,

emergency assistance, and emergency preparedness.

The order also delegates the President’s relief and

assistance functions under the Stafford Act to the

Secretary of Homeland Security, with the exception

of the declaration of a major disaster or emergency.

2. Executive Order 12656, 53 Fed. Reg. 47491

(1988), Assignment of Emergency Preparedness

Responsibilities, as amended by Exec. Order 13286,

68 Fed. Reg. 10619 (2003), assigns lead and

support responsibilities to each of the Federal

agencies for national security emergency

preparedness. The amendment designates DHS as

the principal agency for coordinating programs and

plans among all Federal departments and agencies.

3. Executive Order 13354, 69 Fed. Reg. 53589

(2004), National Counterterrorism Center,

establishes policy to enhance the interchange of

terrorism information among agencies and creates

the National Counterterrorism Center to serve as

the primary Federal organization in the U.S.

Government for analyzing and integrating all

intelligence information posed by the United States

pertaining to terrorism and counterterrorism.

4. Executive Order 13356, 69 Fed. Reg. 53599 (2004),

Strengthening the Sharing of Terrorism Information to

Protect Americans, requires the Director of Central

Intelligence, in consultation with the Attorney General

and the other intelligence agency heads, to develop

common standards for the sharing of terrorism information by agencies within the Intelligence Community

with 1) other agencies within the Intelligence

Community, 2) other agencies having counterterrorism

functions, and 3) through or in coordination with the

Department of Homeland Security, appropriate authorities of State and local governments.

5. Executive Order 12580, 52 Fed. Reg. 2923

(1987), Superfund Implementation, as amended by

numerous Executive orders, delegates to a number

of Federal departments and agencies the authority

and responsibility to implement certain provisions

of CERCLA. The policy and procedures for

implementing these provisions are spelled out in

the NCP and are overseen by the NRT.

6. Executive Order 12382, 47 Fed. Reg. 40531 (1982),

as amended by numerous Executive orders, President’s

National Security Telecommunications Advisory

Committee (NSTAC). This order provides the President

with technical information and advice on national

security telecommunications policy. Up to 30 members from the telecommunications and information

technology industries may hold seats on the NSTAC.

7. Executive Order 12472, 49 Fed. Reg. 13471 (1984),

Assignment of National Security and Emergency

Preparedness Telecommunications Functions, as

amended by Exec. Order 13286, 68 Fed. Reg. 10619

(2003). This order consolidated several directives

covering NSEP telecommunications into a

comprehensive document explaining the assignment

of responsibilities to Federal agencies for

coordinating the planning and provision of NSEP

telecommunications. The fundamental NSEP

objective is to ensure that the Federal Government

has telecommunications services that will function

under all conditions, including emergency situations.

8. Executive Order 12742, 56 Fed. Reg. 1079 (1991),

National Security Industrial Responsiveness, as

amended by Exec. Order 13286, 68 Fed. Reg. 10619

(2003). This order states that the United States must

have the capability to rapidly mobilize its resources

in the interest of national security. Therefore, to

achieve prompt delivery of articles, products, and

materials to meet national security requirements, the

Government may place orders and require priority

performance of these orders.

9. Executive Order 13284, 68 Fed. Reg. 4075 (2003),

Amendment of Executive Orders, and Other Actions,

in Connection With the Establishment of the

Department of Homeland Security. This order

amended previous Executive orders in order to make

provisions for the establishment of DHS.

10. Executive Order 13286, 68 Fed. Reg. 10619

(2003), Amendment of Executive Orders, and Other

Actions, in Connection With the Transfer of Certain

Functions to the Secretary of Homeland Security.

This order reflects the transfer of certain functions
to, and other responsibilities vested in, the Secretary

of Homeland Security, as well as the transfer of

certain agencies and agency components to DHS,

and the delegation of appropriate responsibilities to

the Secretary of Homeland Security.

11. Executive Order 12333, 46 Fed. Reg. 59941

(1981), United States Intelligence Activities,

designates DOE as part of the Intelligence

Community. It further defines counterintelligence as

information gathered and activities conducted to

protect against espionage, sabotage, or assassinations

conducted for or on behalf of foreign powers,

organizations or persons, or international terrorist

activities. This order specifically excludes personnel,

physical, document, or communications security

programs from the definition of counterintelligence.

12. Executive Order 12919, 59 Fed. Reg. 29625 (1994),

National Defense Industrial Resources Preparedness,

as amended by Exec. Order 13286, 68 Fed. Reg.

10619 (2003). This order delegates authorities and

addresses national defense industrial resource policies

and programs under the Defense Production Act of

1950, as amended, except for the amendments to

Title III of the act in the Energy Security Act of 1980

and telecommunication authorities under Exec.

Order 12472, 49 Fed. Reg. 13471 (1984).

13. Executive Order 12777, 56 Fed. Reg. 54757

(1991), Implementation of Section 311 of the

Federal Water Pollution Control Act of October 18,

1972, as amended, and the Oil Pollution Act of

1990, as amended by Exec. Order 13286, 68 Fed.

Reg. 10619 (2003). Implemented section 311 of

the FWPCA as amended by OPA 90.

14. Executive Order 13295, 68 Fed. Reg. 17255 (2003),

Revised List of Quarantinable Communicable

Diseases. Specifies certain communicable diseases for

regulations providing for the apprehension,

detention, or conditional release of individuals to

prevent the introduction, transmission, or spread of

suspected communicable diseases.

15. Executive Order 12196, 45 Fed. Reg. 12769

(1980), Occupational Safety and Health Programs

for Federal Employees. This order sets the OSHA

program guidelines for all agencies in the Executive

Branch except military personnel and uniquely

military equipment, systems, and operations.

C. Presidential Directives

1. Presidential Decision Directive 39: U.S. Policy on

Counterterrorism, June 21, 1995, establishes policy

to reduce the Nation’s vulnerability to terrorism,

deter and respond to terrorism, and strengthen

capabilities to detect, prevent, defeat, and manage

the consequences of terrorist use of WMD; and

assigns agency responsibilities.

2. Presidential Decision Directive 62: Combating

Terrorism, May 22, 1998, reinforces the missions

of Federal departments and agencies charged with

roles in defeating terrorism.

3. Homeland Security Presidential Directive-1:

Organization and Operation of the Homeland

Security Council, Oct. 29, 2001. This directive

establishes policies for the creation of the HSC,

which shall ensure the coordination of all

homeland security-related activities among

executive departments and agencies and promote

the effective development and implementation of

all homeland security policies.

4. Homeland Security Presidential Directive-2:

Combating Terrorism Through Immigration Policies,

Oct. 29, 2001. This directive mandates that, by

November 1, 2001, the Attorney General shall

create the Foreign Terrorist Tracking Task Force, with

assistance from the Secretary of State, the Director

of Central Intelligence, and other officers of the

Government, as appropriate. The Task Force shall

ensure that, to the maximum extent permitted by

law, Federal agencies coordinate programs to

accomplish the following: 1) deny entry into the

United States of aliens associated with, suspected of

being engaged in, or supporting terrorist activity;

and 2) locate, detain, prosecute, or deport any such

aliens already present in the United States.

5. Homeland Security Presidential Directive-3:

Homeland Security Advisory System, Mar. 11, 2002.

This directive establishes policy for the creation of a

Homeland Security Advisory System, which shall

provide a comprehensive and effective means to

86 | National Response Plan December 2004
December 2004 National Response Plan | 87

disseminate information regarding the risk of

terrorist acts to Federal, State, and local authorities

and to the American people. Such a system would

provide warnings in the form of a set of graduated

“Threat Conditions” that would increase as the risk

of the threat increases. At each Threat Condition,

Federal departments and agencies would implement

a corresponding set of “Protective Measures” to

further reduce vulnerability or increase response

capability during a period of heightened alert.

6. Homeland Security Presidential Directive-4:

National Strategy to Combat Weapons of Mass

Destruction, Dec. 2002. Sets forth the National

Strategy to Combat Weapons of Mass Destruction

based on three principal pillars: (1)

Counterproliferation to Combat WMD Use, (2)

Strengthened Nonproliferation to Combat WMD

Proliferation, and (3) Consequence Management to

Respond to WMD Use. The three pillars of the U.S.

national strategy to combat WMD are seamless

elements of a comprehensive approach. Serving to

integrate the pillars are four cross-cutting enabling

functions that need to be pursued on a priority

basis: intelligence collection and analysis on WMD,

delivery systems, and related technologies; research

and development to improve our ability to address

evolving threats; bilateral and multilateral

cooperation; and targeted strategies against hostile

states and terrorists.

7. Homeland Security Presidential Directive-5:

Management of Domestic Incidents, February 28,

2003, is intended to enhance the ability of the

United States to manage domestic incidents by

establishing a single, comprehensive national

incident management system. In HSPD-5 the

President designates the Secretary of Homeland

Security as the PFO for domestic incident

management and empowers the Secretary to

coordinate Federal resources used in response to or

recovery from terrorist attacks, major disasters, or

other emergencies in specific cases. The directive

assigns specific responsibilities to the Attorney

General, Secretary of Defense, Secretary of State, and

the Assistants to the President for Homeland Security

and National Security Affairs, and directs the heads

of all Federal departments and agencies to provide

their “full and prompt cooperation, resources, and

support,” as appropriate and consistent with their

own responsibilities for protecting national security,

to the Secretary of Homeland Security, Attorney

General, Secretary of Defense, and Secretary of State

in the exercise of leadership responsibilities and

missions assigned in HSPD-5. The directive also

notes that it does not alter, or impede the ability to

carry out, the authorities of Federal departments and

agencies to perform their responsibilities under law.

8. Homeland Security Presidential Directive-6:

Integration and Use of Screening Information, Sept.

16, 2003. In order to protect against terrorism, this

directive establishes the national policy to: (1)

develop, integrate, and maintain thorough, accurate,

and current information about individuals known or

appropriately suspected to be or have been engaged

in conduct constituting, in preparation for, in aid of,

or related to terrorism (Terrorist Information); and

(2) use that information as appropriate and to the

full extent permitted by law to support (a) Federal,

State, local, territorial, tribal, foreign-government,

and private-sector screening processes, and (b)

diplomatic, military, intelligence, law enforcement,

immigration, visa, and protective processes.

9. Homeland Security Presidential Directive-7:

Critical Infrastructure Identification, Prioritization,

and Protection, Dec. 17, 2003. This directive

establishes a national policy for Federal

departments and agencies to identify and prioritize

U.S. critical infrastructure and key resources and to

protect them from terrorist attacks.

10. Homeland Security Presidential Directive-8:

National Preparedness, Dec. 17, 2003. This directive

establishes policies to strengthen the preparedness of

the United States to prevent and respond to threatened

or actual domestic terrorist attacks, major disasters,

and other emergencies by requiring a national

domestic all-hazards preparedness goal, establishing

mechanisms for improved delivery of Federal preparedness assistance to State and local governments,

and outlining actions to strengthen preparedness

capabilities of Federal, State, and local entities.

11. Homeland Security Presidential Directive-9:

Defense of United States Agriculture and Food, Jan.

30, 2004. This directive establishes a national

policy to defend the agriculture and food system
against terrorist attacks, major disasters, and other

emergencies.

12. Homeland Security Presidential Directive-10:

Biodefense for the 21st Century, April 28, 2004.

This directive provides a comprehensive framework

for the Nation’s biodefense and, among other

things, delineates the roles and responsibilities of

Federal agencies and departments in continuing

their important work in this area.

13. National Security Directive 42: National Policy for

the Security of National Security Telecommunications

and Information Systems, July 5, 1990. This directive

establishes initial objectives of policies, and an

organizational structure to guide the conduct of

activities to secure national security systems from

exploitation; establishes a mechanism for policy

development and dissemination; and assigns

responsibilities for implementation.

88 | National Response Plan December 2004
December 2004 National Response Plan | 89

Appendix 4

Compendium of National/International Interagency Plans

Canada-United States Joint

Inland Pollution Contingency Plan

Maintained by EPA and the Government of Canada, the Canada-United States Joint

Inland Pollution Contingency Plan establishes a cooperative strategy for preparing

for and responding to accidental and unauthorized releases of hazardous

substances along the shared inland border. The plan is applicable to situations

where a release causes or could cause damage to the environment along the

border and poses a threat to public health, property, or welfare. The plan also may

be activated when only one country is affected by an incident, but requires

assistance from the other country. The plan is supported by five regional annexes.

Canada-United States Joint

Marine Contingency Plan

Maintained by DHS/USCG and the Government of Canada, the Canada-United

States Joint Marine Contingency Plan (JCP) provides for a coordinated system

for planning, preparedness, and responding to harmful substance incidents in

the contiguous waters of Canada and the United States. This plan is supported

by five geographic annexes. The annexes supplement the JCP and provide the

basic information necessary to execute an efficient and effective response in

the contiguous waters.

Department of Defense Civil

Disturbance Plan

Maintained by DOD, this plan provides policy and responsibilities governing

the planning and response by DOD components for military assistance to

Federal, State, and local government (including government of U.S.

territories) and their law enforcement agencies for civil disturbances.

Federal Family Assistance Plan

for Aviation Disasters

Maintained by the National Transportation Safety Board, the purpose of this

plan is to coordinate Federal assistance to victims and family members after

aviation disasters. The plan pertains to any domestic or foreign commercial

aviation crash that occurs within the United States or its territories,

possessions, and territorial seas.

Health and Medical Services

Support Plan for the Federal

Response to Acts of C/B

Terrorism

Maintained by HHS, this plan provides a coordinated Federal response for

urgent public health and medical care needs resulting from chemical or

biological terrorist threats or acts in the United States. This plan serves as a

supporting document to ESF #8 - Public Health and Medical Services.

Joint Contingency Plan

Between the United Mexican

States and the United States

of America Regarding Pollution

of the Marine Environment by

Discharges of Hydrocarbons or

Other Hazardous Substances

Maintained by DHS/USCG and the Government of Mexico, the MEXUS Plan

establishes guidelines for coordinating bilateral responses to pollution

incidents that occur in, or threaten, coastal waters or areas of the border

zones between Mexico and the United States that could affect or threaten the

marine environment of both parties. The MEXUS Plan outlines the joint

response system and identifies agencies from both Mexico and the United

States that will provide varying levels of support during a pollution incident.

Joint Contingency Plan of the

United States of America and

the Russian Federation on

Combating Pollution in the

Bering and Chukchi Seas

Maintained by DHS/USCG and the Russian Federation, this plan and its

operational appendixes provide for coordinated and combined responses to

pollution incidents in the Bering and Chukchi Seas and augments pertinent

national, State, republic, regional, and local plans of the two Nations. This

plan was updated and signed in March 2001.

Plan Description
90 | National Response Plan December 2004

National Emergency

Response to a

Highly Contagious

Animal Disease

Maintained by USDA/APHIS, this plan provides the procedures and structures to detect,

control, and eradicate a highly contagious disease as quickly as possible to return the United

States to a contamination-free status. The plan coordinates actions by Federal, State, and local

officials in response to a suspected or actual foreign animal disease/emerging disease incident.

Highly contagious diseases are those diseases rapidly spreading from animal to animal as well

as herd to herd. Transmission can occur via direct and indirect modes; has above normal

morbidity/mortality per unit time; and could be based on species or production.

National Oil and

Hazardous

Substances

Pollution

Contingency Plan

Maintained by the EPA in coordination with the NRT, the NCP provides the organizational

structure and procedures for preparing for and responding to discharges of oil and releases of

hazardous substances, pollutants, and contaminants. To achieve this objective, the NCP

establishes the NRT, RRTs, and local Area Committees to coordinate planning and preparedness

efforts. Federal OSCs coordinate response activities at the incident site. The NCP applies to oil

discharges into or on the navigable waters of the United States (including adjoining shorelines

and into the exclusive economic zone) and to releases into the environment of hazardous

substances, and pollutants or contaminants that may present an imminent and substantial

danger to public health or welfare.

National Plan for

Telecommunications

Support in 

Non-Wartime

Emergencies

Maintained by the Office of Science and Technology Policy, the National Plan for

Telecommunications Support in Non-Wartime Emergencies provides procedures for planning

and using national telecommunications assets and resources in support of non-wartime

emergencies, including those covered by the Disaster Relief Act of 1974, in Presidentially

declared emergencies and major disasters, extraordinary situations, and other emergencies.

National Search and

Rescue Plan

The National Search and Rescue Plan (NSP) is maintained by the National Search and Rescue

Commission. The NSP provides an overall plan for the interagency coordination of civil search

and rescue (SAR) operations to help the United States satisfy its humanitarian, national, and

international SAR-related obligations. The plan assigns coordination and response responsibilities

to DHS/USCG for aeronautical and maritime SAR within oceanic SAR regions for which the

United States has primary responsibility. This plan covers maritime, aeronautical, and land civil

SAR operations; delivery of survivors to a place of safety; and the saving of property when it can

be done in conjunction with the saving of lives. The NSP is solely intended to provide internal

guidance to all signatory Federal agencies. The plan is not intended to conflict with SAR

responsibilities in international instruments to which the United States is or may become a party.

U.S. Department of

Health and Human

Services Concept of

Operations Plan

(CONOPS) for Public

Health and Medical

Emergencies

Maintained by HHS, this plan establishes a framework for the management of public health

and medical emergencies and events that require assistance from HHS. This plan covers all

events and activities (e.g., preparedness, response, recovery, etc.) deemed by the Secretary of

HHS, or his/her designee, to require a coordinated Departmental response. HHS has

primary responsibility for public health and medical emergency planning, preparations,

response, and recovery in which one or more of the following apply: local, State, or tribal

resources are insufficient to address all of the public health needs; the resources of State,

local, or tribal public health and/or medical authorities are overwhelmed and HHS

assistance has been requested by the appropriate health authorities; or a Federal department

or agency acting under its own authority has requested the assistance of HHS. Public

health and medical emergencies addressed by this plan include those resulting from natural

and man-made disasters, terrorist threats, infectious disease outbreaks and pandemics, and

any other circumstance that creates an actual or potential public health or medical

emergency where Federal assistance may be necessary.

Plan Description
1. The Department of Homeland Security Homeland

Security Operations Center (DHS HSOC)

continually monitors potential major disasters and

emergencies. When advance warning is possible,

DHS may deploy and may request other Federal

agencies to deploy liaison officers and personnel to

a State Emergency Operations Center (EOC) to

assess the emerging situation. An RRCC may be

activated, fully or partially. Facilities, such as

mobilization centers, may be established to

accommodate personnel, equipment, and supplies.

2. Immediately after an incident, local jurisdictions

respond using available resources and notify State

response elements. As information emerges, they

also assess the situation and the need for State

assistance. The State reviews the situation,

mobilizes State resources, and informs the

DHS/EPR/FEMA Regional Office of actions taken.

The Governor activates the State emergency

operations plan, proclaims or declares a state of

emergency, and requests a State/DHS joint

Preliminary Damage Assessment (PDA) to

determine if sufficient damage has occurred to

justify a request for a Presidential declaration of a

major disaster or emergency. Based upon the

results of the PDA, the Governor may request a

Presidential declaration and defines the kind of

Federal assistance needed. At this point, an initial

assessment is also conducted of losses avoided

based on previous mitigation efforts.

3. After the major disaster or emergency declaration, an

RRCC, staffed by regional personnel, coordinates

initial regional and field activities such as deployment

of an ERT-A. The ERT-A assesses the impact of the

event, gauges immediate State needs, and makes

preliminary arrangements to set up operational field

facilities. (If regional resources appear to be

overwhelmed or if the event has potentially significant

consequences, DHS may deploy an ERT-N.)

4. Depending on the scope and impact of the event,

the NRCC, comprised of Emergency Support

Function (ESF) representatives and DHS/EPR/FEMA

support staff, carries out initial activation and

mission assignment operations and supports the

RRCC from DHS/EPR/FEMA.

5. A Federal Coordinating Officer (FCO), appointed by

the Secretary of Homeland Security on behalf of the

President, coordinates Federal support activities. The

FCO works with the State Coordinating Officer

(SCO) to identify requirements. A Principal Federal

Official (PFO) also may be designated as the

Secretary’s representative to coordinate overall

Federal interagency incident management efforts.

6. The ERT works with the affected State and conducts

field operations from the JFO. ESF primary

agencies assess the situation and identify

requirements and help States respond effectively.

Federal agencies provide resources under

DHS/EPR/FEMA mission assignment or their own

authority.

7. The IIMG convenes when needed to provide

strategic-level coordination and frame courses of

action regarding various operational and policy

issues. The HSOC supports the IIMG and

coordinates with the JFO.

8. Teleregistration activates a toll-free telephone

number individuals can call to apply for disaster

assistance. A toll-free disaster helpline is established

to answer common questions. One or more DRCs

may be opened where individuals can obtain

information about disaster assistance, advice, and

counsel. Individual applicants are processed at the

DHS/EPR/FEMA National Processing Center.

Inspectors verify losses and provide documentation

used to determine the types of disaster assistance to

be granted to individuals and families.

December 2004 National Response Plan | 91

Appendix 5

Overview of Initial Federal Involvement Under the Stafford Act

This overview illustrates actions Federal agencies likely will take to assist State and local governments that are

overwhelmed by a major disaster or emergency. Key operational components that could be activated include the

Interagency Incident Management Group (IIMG), National Response Coordination Center (NRCC), Regional

Response Coordination Center (RRCC), Emergency Response Team–Advance Element (ERT-A), National Emergency

Response Team (ERT-N), Joint Field Office (JFO), and Disaster Recovery Center (DRC).
92 | National Response Plan December 2004

9. As immediate response priorities are met, recovery

activities begin. Federal and State agencies assisting

with recovery and mitigation activities convene to

discuss State needs.

10. Public Assistance Applicant Briefings are conducted

for local government officials and certain private

nonprofit organizations to inform them of available

assistance and how to apply. Applicants must first file

a Request for Public Assistance. Eligible applicants

will be notified and will define each project on a

Project Worksheet, which details the scope of damage

and a cost estimate for repair to a pre-disaster

condition. The Project Worksheet is used as the basis

for obligating funds to the State for eligible projects.

11. Throughout response and recovery, mitigation staff

at the JFO examine ways to maximize mitigation

measures in accordance with State hazard

mitigation administrative plans. Grounded in the

local risk, and with State priorities and mitigation

plans in place, DHS/EPR/FEMA and State officials

contact local officials to identify potential projects

and suggest which ones should be included in an

early implementation strategy. The strategy focuses

on viable opportunities to provide funds, technical

assistance, and staff support to incorporate

mitigation into the overall community recovery, to

include the repair and replacement of damaged or

destroyed housing and infrastructure.

12. As the need for full-time interagency coordination

at the JFO ceases, the ERT plans for selective release

of Federal resources, demobilization, and closeout.

Federal agencies then work directly with their

grantees from their regional or HQ offices to

administer and monitor individual recovery

programs, support, and technical services.
December 2004 National Response Plan | 93

Federal 

Assistance

Incident

Occurs

Homeland 

Security Ops Center

Monitors threats & 

potential incidents

NRP Resources

May deploy in advance 

of imminent 

danger

FIGURE 11. Overview of initial Federal involvement under the Stafford Act

Activates

Joint Field Office

Provides coordination 

of Federal resources

Delivers

Activates

Emergency 

Response Team 

or other elements

Deployed as 

necessary

DHS and others

Implement National 

Response Plan

Activates

President

Declares major disaster 

or emergency

Alerts

Requests 

aid from

Preliminary

Damage

Assessment 

& requests

Presidential

declaration

Reports

to May convene

Interagency 

Incident 

Management Group

Frames operational

courses of action

Secretary, DHS

Reviews situation,

assesses need for disaster

declaration & activation 

of NRP elements

Homeland 

Security Ops Center

Evaluates situation

Governor

Activates State EOC

Mayor/County

Executive

Activates local EOC

Local First

Responders

Arrive first at scene

Recommends
1. Federal departments and agencies routinely manage

the response to incidents that do not rise to the

level of an Incident of National Significance. When

a Federal entity with primary responsibility and

statutory authority for handling an incident

requires assistance beyond its normal operations

(for an incident that is not determined to be an

Incident of National Significance), that agency may

request DHS coordination of Federal multiagency

assistance to support incident management efforts.

DHS coordinates assistance using the multiagency

coordination structures in the National Response

Plan (NRP). Generally, the requesting agency

provides funding for the incident in accordance

with provisions of the Economy Act, unless other

statutory authorities exist.

2. To initiate Federal-to-Federal support, requests for

assistance are submitted to the DHS Executive

Secretary (via the Homeland Security Operations

Center (HSOC)) for consideration and approval.

Requests should include a summary of the

situation, types and amount of resources needed,

financial information, and any other appropriate

information.

3. Upon approval of the request, the Secretary of

Homeland Security issues an operations order to

the HSOC. The HSOC, through the NRCC,

coordinates the activation of the appropriate

Emergency Support Functions (ESFs). Additionally,

the Secretary of Homeland Security designates a

Federal Resource Coordinator (FRC) to serve as the

Secretary's representative in the field to manage

Federal resource support. A Principal Federal

Official (PFO) also may be designated as the

Secretary's representative to coordinate overall

Federal interagency incident management efforts.

4. The requesting agency designates a Senior Federal

Official (SFO) to work in coordination with the

FRC to identify support requirements.

5. The requesting agency also provides Comptrollers

to the NRCC, RRCC, and JFO, as appropriate, to

oversee financial management activities.

6. An RRCC may be activated, fully or partially, to

facilitate the deployment of resources until a JFO is

established. Facilities, such as mobilization centers,

may be established to accommodate personnel,

equipment, and supplies.

7. Federal agencies provide resources under

interagency reimbursable agreements (RAs) or

their own authority.

8. Once established, the JFO serves as the focal point

for coordinating Federal assistance to the

requesting agency and incident command

structures on-scene.

9. As needed, the IIMG convenes to provide strategiclevel coordination and frame courses of action

regarding various operational and policy issues.

10. As the need for full-time interagency coordination

at the JFO ceases, the JFO Coordination Group

plans for selective release of Federal resources,

demobilization, and closeout.

94 | National Response Plan December 2004

Appendix 6

Overview of Federal-to-Federal 

Support in Non-Stafford Act Situations

This overview illustrates actions DHS and Federal agencies likely take to support a Federal department or agency that

has requested DHS assistance to appropriately handle an incident under their jurisdiction. Key operational

components that could be activated include the Interagency Incident Management Group (IIMG), National Response

Coordination Center (NRCC), Regional Response Coordination Center (RRCC), and Joint Field Office (JFO).
December 2004 National Response Plan | 95

* Incident not otherwise determined to be an Incident of National Significance

Federal 

Assistance

Incident or

Potential

Incident*

FIGURE 12. Overview of Federal-to-Federal support in non-Stafford Act situations

Joint Field Office

Provides coordination 

of Federal resources

Delivers

Emergency 

Support Functions

and other elements 

as needed

DHS and others

Implement National 

Response Plan

Activates

Reports

situation

and

requests

DHS

assistance

May convene

Interagency 

Incident 

Management Group

Frames operational 

courses of action

Secretary, DHS

Reviews situation,

assesses need for activation 

of NRP components,

designates FRC

Homeland 

Security Ops Center

Evaluates situation

Federal Agency With 

Primary Jurisdiction

Determines that additional

Federal support is needed

Local First Responders

Local, State, and Federal first

responders arrive at scene
This page intentionally left blank.