Response Federal 

Interagency Operational Plan 

Second Edition 

August 2016 

Response Federal Interagency Operational Plan 

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Table of Contents 

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

Purpose ..................................................................................................................................................... 1

Audience ................................................................................................................................................... 2

Response Core Capabilities .................................................................................................................... 3

Organization ............................................................................................................................................ 6

Situation ................................................................................................................................................... 7

Mission and Scope ................................................................................................................................... 8

Planning Assumptions and Critical Considerations ............................................................................ 9

CONCEPT OF OPERATIONS ............................................................................................................... 12

Coordination of Federal Response Activities ..................................................................................... 12

Provision of Federal Response Capabilities ........................................................................................ 13

Coordinating and Delivering Response Core Capabilities ................................................................ 15

Non-Stafford Act Federal Response Capabilities ............................................................................... 16

Request for Federal Support under the Stafford Act........................................................................ 16

Key Federal Decisions ........................................................................................................................... 18

Critical Information Requirements ..................................................................................................... 19

Coordinating Instructions .................................................................................................................... 19

Administration, Funding, and Resources ........................................................................................... 22

OVERSIGHT, PLAN DEVELOPMENT, AND MAINTENANCE ..................................................... 25

AUTHORITIES AND REFERENCES ................................................................................................... 26

ANNEX A: EMERGENCY SUPPORT FUNCTION TO CORE CAPABILITY MATRIX ........... A-1

Purpose ................................................................................................................................................. A-1

Situation ............................................................................................................................................... A-1

Mission ................................................................................................................................................. A-1

ESF to Core Capability Matrix .......................................................................................................... A-1

ANNEX B: PLANNING ......................................................................................................................... B-1

Purpose ................................................................................................................................................. B-1

Situation............................................................................................................................................... B-1

Assumptions ......................................................................................................................................... B-1

Mission ................................................................................................................................................. B-2

Execution ............................................................................................................................................. B-2

Administration and Support ............................................................................................................ B-17

APPENDIX 1 TO ANNEX B: RISK MANAGEMENT ................................................................... B.1-1

Purpose .............................................................................................................................................. B.1-1
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Situation ............................................................................................................................................ B.1-1

Risk Assessment ............................................................................................................................... B.1-1

Operational Risk and Risk Management Strategies ..................................................................... B.1-7

APPENDIX 2 TO ANNEX B: SITUATIONAL ASSESSMENT ..................................................... B.2-1

Purpose .............................................................................................................................................. B.2-1

Situation ............................................................................................................................................ B.2-1

Assumptions ...................................................................................................................................... B.2-2

Mission .............................................................................................................................................. B.2-2

Execution .......................................................................................................................................... B.2-3

Administration and Support ......................................................................................................... B.2-16

APPENDIX 3 TO ANNEX B: GEOSPATIAL .................................................................................. B.3-1

Purpose ............................................................................................................................................. B.3-1

Situation ............................................................................................................................................ B.3-1

Assumptions ...................................................................................................................................... B.3-1

Mission .............................................................................................................................................. B.3-2

Execution .......................................................................................................................................... B.3-2

Administration and Support ......................................................................................................... B.3-10

ANNEX C: OPERATIONAL COORDINATION ............................................................................... C-1

Purpose ................................................................................................................................................. C-1

Situation ............................................................................................................................................... C-1

Assumptions ......................................................................................................................................... C-2

Mission ................................................................................................................................................. C-2

Execution ............................................................................................................................................. C-2

Administration and Support ............................................................................................................ C-20

APPENDIX 1 TO ANNEX C: PUBLIC INFORMATION AND WARNING ............................... C.1-1

Purpose .............................................................................................................................................. C.1-1

Situation ............................................................................................................................................ C.1-1

Assumptions ...................................................................................................................................... C.1-2

Mission .............................................................................................................................................. C.1-2

Execution .......................................................................................................................................... C.1-2

Administration and Support ......................................................................................................... C.1-20

APPENDIX 2 TO ANNEX C: PUBLIC HEALTH, HEALTHCARE, AND EMERGENCY 

MEDICAL SERVICES ....................................................................................................................... C.2-1

Purpose ..............................................................................................................................................C.2-1

Situation ............................................................................................................................................ C.2-1

Assumptions ......................................................................................................................................C.2-1
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Mission .............................................................................................................................................. C.2-2

Execution .......................................................................................................................................... C.2-2

Administration and Support ......................................................................................................... C.2-16

APPENDIX 3 TO ANNEX C: ENVIRONMENTAL RESPONSE/HEALTH AND SAFETY ..... C.3-1

Purpose .............................................................................................................................................. C.3-1

Situation ............................................................................................................................................ C.3-1

Assumptions ...................................................................................................................................... C.3-2

Mission .............................................................................................................................................. C.3-2

Execution .......................................................................................................................................... C.3-2

Administration and Support ......................................................................................................... C.3-14

APPENDIX 4 TO ANNEX C: FATALITY MANAGEMENT SERVICES ................................... C.4-1

Purpose .............................................................................................................................................. C.4-1

Situation ............................................................................................................................................ C.4-1

Assumptions ...................................................................................................................................... C.4-3

Mission .............................................................................................................................................. C.4-4

Execution .......................................................................................................................................... C.4-4

Administration and Support ......................................................................................................... C.4-10

APPENDIX 5 TO ANNEX C: INFRASTRUCTURE SYSTEMS ................................................... C.5-1

Purpose .............................................................................................................................................. C.5-1

Situation ............................................................................................................................................ C.5-1

Assumptions ...................................................................................................................................... C.5-2

Mission .............................................................................................................................................. C.5-2

Execution .......................................................................................................................................... C.5-2

Administration and Support ......................................................................................................... C.5-17

APPENDIX 6 TO ANNEX C: MASS CARE SERVICES ............................................................... C.6-1

Purpose .............................................................................................................................................. C.6-1

Situation ............................................................................................................................................ C.6-1

Assumptions ...................................................................................................................................... C.6-2

Mission .............................................................................................................................................. C.6-2

Execution .......................................................................................................................................... C.6-3

Administration and Support ......................................................................................................... C.6-24

APPENDIX 7 TO ANNEX C: MASS SEARCH AND RESCUE OPERATIONS ......................... C.7-1

Purpose .............................................................................................................................................. C.7-1

Situation ............................................................................................................................................ C.7-1

Assumptions ...................................................................................................................................... C.7-2

Mission .............................................................................................................................................. C.7-2
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Execution .......................................................................................................................................... C.7-2

Administration and Support ........................................................................................................... C.7-9

APPENDIX 8 TO ANNEX C: ON-SCENE SECURITY, PROTECTION, AND LAW 

ENFORCEMENT ................................................................................................................................ C.8-1

Purpose .............................................................................................................................................. C.8-1

Situation ............................................................................................................................................ C.8-1

Assumptions ...................................................................................................................................... C.8-2

Mission .............................................................................................................................................. C.8-2

Execution .......................................................................................................................................... C.8-2

Administration and Support ........................................................................................................... C.8-9

APPENDIX 9 TO ANNEX C: FIRE MANAGEMENT AND SUPPRESSION ............................. C.9-1

Purpose .............................................................................................................................................. C.9-1

Situation ............................................................................................................................................ C.9-1

Assumptions ...................................................................................................................................... C.9-2

Mission .............................................................................................................................................. C.9-2

Execution .......................................................................................................................................... C.9-2

Administration and Support ........................................................................................................... C.9-9

APPENDIX 10 TO ANNEX C: SYNCHRONIZATION MATRIX .............................................. C.10-1

Introduction .................................................................................................................................... C.10-1

ANNEX D: LOGISTICS AND SUPPLY CHAIN MANAGEMENT (OPERATIONAL SUPPORT)

.................................................................................................................................................................. D-1

Purpose ................................................................................................................................................. D-1

Situation ............................................................................................................................................... D-1

Assumption .......................................................................................................................................... D-1

Mission ................................................................................................................................................. D-1

Execution ............................................................................................................................................. D-2

Administration and Support ............................................................................................................ D-22

ANNEX D, TAB 1: PRE-SCRIPTED MISSION ASSIGNMENTS ................................................. D-23

APPENDIX 1 TO ANNEX D: CRITICAL TRANSPORTATION ................................................. D.1-1

Purpose .............................................................................................................................................. D.1-1

Situation ............................................................................................................................................ D.1-1

Assumptions ...................................................................................................................................... D.1-2

Mission .............................................................................................................................................. D.1-2

Execution .......................................................................................................................................... D.1-2

Administration and Support ......................................................................................................... D.1-14

APPENDIX 1 TO ANNEX D, TAB 1: RESOURCE AND TEAM CACHE ................................ D.1-15
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ANNEX E: OPERATIONAL COMMUNICATIONS ......................................................................... E-1

Purpose ................................................................................................................................................. E-1

Situation ............................................................................................................................................... E-1

Assumptions ......................................................................................................................................... E-2

Mission ................................................................................................................................................. E-2

Execution ............................................................................................................................................. E-2

Administration and Support ............................................................................................................ E-18

ANNEX Y: LIST OF ABBREVIATIONS ............................................................................................ Y-1

ANNEX Z: DISTRIBUTION ................................................................................................................. Z-1
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Response Federal Interagency Operational Plan 

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Introduction

The National Preparedness System outlines an organized process for the whole community to move 

forward with their preparedness activities and achieve the National Preparedness Goal. The National 

Preparedness System integrates efforts across the five preparedness mission areas—Prevention, 

Protection, Mitigation, Response, and Recovery—in order to achieve the goal of a secure and 

resilient Nation. A key component of the National Preparedness System is a National Planning 

System which integrates planning across all levels of government and with the private and nonprofit 

sectors around key capabilities that can be mixed and matched, as needed, to provide an agile, 

resilient, flexible approach to prevent, protect, mitigate, respond, and recover. 

The National Planning System includes the following elements: (1) a set of National Planning 

Frameworks that describe the key roles and responsibilities to deliver the core capabilities required to 

prevent, protect, mitigate, respond, and recover; (2) a set of Federal Interagency Operational Plans 

(FIOP)—one for each mission area—that provides further detail regarding roles and responsibilities, 

specifies the critical tasks, and identifies resourcing and sourcing requirements for delivering core 

capabilities; (3) Federal department and agency operational plans to implement the FIOPs; and (4) 

comprehensive planning guidance to support planning by local, state, tribal, territorial, and insular 

area governments, nongovernmental organizations (NGO), and the private sector. 1

This Response FIOP builds upon the National Response Framework (NRF), which sets the strategy 

and doctrine for how the whole community2builds, sustains, and delivers the Response core 

capabilities identified in the National Preparedness Goal. This FIOP describes the concept of 

operations for integrating and synchronizing existing national-level Federal capabilities to support 

local, state, tribal, territorial, insular area, and Federal plans and is supported by Federal departmentlevel operational plans, where appropriate. The concept of operations and supporting tasks contained 

in the Response FIOP are scalable, flexible, resilient, and adaptable, allowing the FIOP to be used 

regardless of cause, size, location, or complexity. Concepts of operations and/or tasks may be 

modified, added, or deleted depending upon the incident. 

Purpose 

This FIOP describes how the Federal Government delivers core capabilities for the Response mission 

area. Specifically, the Response FIOP is an all-hazards plan that describes how the Federal 

Government coordinates its efforts to save lives, protect property and the environment, and meet 

basic human needs following an emergency or disaster. The Response FIOP is built on the National 

Incident Management System (NIMS) concepts and principles and reflects the whole community 

concept, which incorporates a full range of stakeholders—individuals, families, communities, the 

private and nonprofit sectors, faith-based organizations, and local, state, tribal, territorial, insular 

 

1

 For the purposes of this FIOP, insular areas include American Samoa, the Federated States of Micronesia, Guam, 

the Marshall Islands, the Northern Mariana Islands, and the U.S. Virgin Islands. Other statutes or departments and 

agencies may define the term “insular area” differently.

2

 The whole community individuals and communities, the private and nonprofit sectors, faith-based organizations, 

and all levels of government (local, regional/metropolitan, state, tribal, territorial, insular area, and Federal). Whole 

community focuses on enabling the participation in national preparedness activities of a wide range of players from 

the private and nonprofit sectors, including NGOs and the general public, in conjunction with the participation of 

local, state, tribal, territorial, insular area and Federal governmental partners in order to foster better coordination 

and working relationships. 
Response Federal Interagency Operational Plan 

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area, and Federal governments—in national preparedness activities and as full partners in incident 

response operations. 

Collectively, the National Planning Frameworks provide comprehensive and interlocking strategic 

guidance on how to deliver and integrate core capabilities through each mission area’s FIOP. The 

Response FIOP specifically supports the NRF. 

The Response FIOP describes how the Federal interagency partners will provide support to the local, 

state, tribal, territorial, and insular area entities in the following manners: 

 Improve coordination and integration of incident management communications and increase 

situational awareness and understanding across the whole community 

 Provide a proactive and integrated Federal response to incidents 

 Maximize the integration of incident-related mission area activities 

 Maximize efficient utilization of shared resources needed for effective incident management. 

In the instances of imminent terrorist threats and suspected acts of terrorism, Response activities, as 

appropriate, will be coordinated with the operational coordination structures reported in Annexes B 

and C, the Biological, Nuclear/Radiological and Oil/Chemical Incident Annexes to the Response and 

Recovery FIOPs, and the Prevention and Protection FIOPs in order to achieve integration and unity 

of effort. 

Audience 

The Response FIOP is directed toward Federal interagency department and agency operations. In 

contrast, the NRF is intended to be used by a full range of stakeholders. The whole community 

includes all individuals and household members, specifically inclusive of people with disabilities, 

children, older Americans, people with different levels of language English proficiency, 

communities, the private and nonprofit sectors, faith-based organizations, and local, state, tribal, 

territorial, insular area, and Federal governments—and the Nation as a whole. This Federal plan 

recognizes success relies upon a whole community approach and is dependent upon Federal 

interagency collaboration and integration. Departments, agencies, Federal coordinating structures, 

and interagency partnerships should use this FIOP as a guide for Response operations. While 

engaging the whole community is critical to successful integration, the Response FIOP is directed 

toward Federal agency operations. Federal departments and agencies will develop and maintain 

department-level operational plans, as necessary, to deliver capabilities to fulfill responsibilities 

under the NRF and this FIOP. Departments and agencies are expected to use existing plans, 

protocols, standard operating procedures, or standard operating guides for the development of such 

plans. Table 1 includes the items addressed by the Response FIOP. 
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Table 1: Guidance for Audiences Provided by the Response FIOP 

Response FIOP document addresses: Response FIOP document does NOT address:

Guidance and a concept of operations to facilitate 

the development of plans

A contingency or implementation plan based on a 

specific threat or a scenario

Specific core capabilities that Federal 

departments or agencies can apply to the 

Response mission activities

How each Federal department or agency will 

execute their response missions

Response requirements, coordination structures, 

and implementation processes for Federal 

departments or agencies

Information on roles and responsibilities of local, 

state, tribal, territorial, insular area, private sector, 

and individuals

Engaging all members of the whole community is essential to national preparedness, and individuals 

and communities are key components. With equal access to the pertinent knowledge and skills, all 

members of the community can contribute to national preparedness. This includes children, 

individuals with disabilities, and others with access and functional needs3

; those from religious, 

racial, and ethnically diverse backgrounds; and people with limited English proficiency (LEP). Their 

contributions must be integrated into preparedness efforts, and their needs must be incorporated as 

the whole community plans for and delivers the core capabilities. 

Response Core Capabilities 

The Response mission area includes the core capabilities necessary to save lives, protect property and 

the environment, and meet basic human needs after an incident has occurred, as shown in Table 2. It 

is focused on ensuring that the Nation is able to effectively respond to any threat or hazard, including 

those with cascading effects, with an emphasis on saving and sustaining lives and stabilizing the 

incident, as well as the ability to perform these functions during all hazards emergencies. In addition, 

it focuses on rapidly meeting basic human needs; restoring basic services and community 

functionality; establishing a safe, secure, and accessible environment for responders and response 

operations; and supporting the transition to recovery. 

3

 Access and functional needs refers to persons who may have additional needs before, during and after an incident 

in functional areas, including but not limited to: maintaining health, independence, communication, transportation, 

support, services, self-determination, and medical care. Individuals in need of additional response assistance may 

include those who have disabilities; live in institutionalized settings; are older adults; are children; are from diverse 

cultures; have limited English proficiency or are non-English speaking; or are transportation disadvantaged 
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Table 2: Response Mission Area Core Capabilities4

Situational Assessment On-scene Security, Protection, and 

Law Enforcement

Planning Mass Search and Rescue Operations

Operational Coordination Mass Care Services

Public Information and Warning Logistics and Supply Chain Management

Critical Transportation Public Health, Healthcare, and Emergency 

Medical Services

Operational Communications Infrastructure Systems

Environmental Response/Health and Safety Fatality Management Services

Fire Management and Suppression

The functions described in the core capabilities often involve either support to, or the cooperation of, 

several incident management partners to ensure the integration and transitions between Prevention, 

Protection, Mitigation, Response, and Recovery activities. Planning, Public Information and 

Warning, and Operational Coordination are core capabilities shared by all mission areas. The 

Response FIOP describes the interdependencies within the Response core capabilities. However, the 

following provides an overview of the interdependencies between the Response mission area and 

other mission areas: 

Figure 1: Integration of the Mission Areas to Achieve the National Preparedness Goal 

 Prevention: Prevention facilitates effective Federal law enforcement, investigative, intelligence,

and operational responses to threatened or actual acts of terrorism within the United States and its

territories. It unifies the collective capabilities of the Federal Government to respond to an

4

 The Planning; Public Information and Warning; and Operational Coordination core capabilities are common to all 

mission areas. 
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imminent threat, terrorist attack, and/or follow-on attack. The Prevention mission area focuses on 

those intelligence, technical, and law enforcement actions that prevent an adversary from 

carrying out an attack within the United States when the threat is imminent in order to thwart an 

initial or follow-on terrorist attack. In the instances of imminent terrorist threats and suspected 

acts of terrorism, prevention activities include the law enforcement response; public safety; crime 

scene security and preservation of evidence; render safe of chemical, biological, radiological, 

nuclear, or high-yield explosive (CBRNE) devices; tactical missions; and counterterrorism, 

counterintelligence, and criminal investigative activities. Prevention efforts interact with whole 

community response efforts to ensure a coordinated Federal effort and, as necessary, to establish 

joint priorities across mission space, particularly in areas such as incident site/crime scene access, 

pre-positioning of assets, operations to resolve threats, public information and warning, and 

fatalities management. This allows responders to simultaneously save lives, investigate and 

resolve threats, and/or prevent follow-on attacks. Prevention and response actors must be in 

communication during times of an imminent threat so that response assets, to the extent practical 

and appropriate, may be pre-positioned. Both mission areas will be conducted in the same space, 

at the same time, relying on many of the same organizations for support. Prioritization, 

deconfliction, and information sharing will be required for synchronized operations and 

uniformly informed decision making between these two mission areas. 

 Protection: In the aftermath of an incident, risk assessments for surrounding critical 

infrastructure may assist in prioritizing response efforts to prevent cascading effects. Efforts to 

protect people and communities, as well as vital facilities, systems, and resources, are 

inextricably linked to response efforts. Protection resources and capabilities required to support 

whole community response operations will be coordinated through the structures identified in the 

NRF. Protection of critical infrastructure, electronic information and communications systems 

and services, and the information contained therein and the implementation of plans for the rapid 

restoration of commercial activities and critical infrastructure operations are crucial aspects of the 

Protection mission area. Natural disasters and incidents can increase vulnerabilities that require 

the implementation of actions developed by the Protection mission area. The National Protection 

Framework provides the structure to assess and address increased vulnerabilities and risks 

beyond the specific disaster area and ensure that protective posture is not compromised. 

 Mitigation: Mitigation feeds the operational landscape for response operations. Effective whole 

community mitigation efforts can directly reduce the required scale of response operations. To 

address and reduce risks, mitigation employs strategies that involve modification of the physical 

built environment at a community level, which may reduce the impact of catastrophic incidents 

and the required response. Threat and hazard information and risk assessment data can trigger 

crucial lifesaving and life-sustaining operations. This data can be used to develop a better 

understanding of the situation in order to deliver information for decision making, while easing 

transition into recovery functions. When incidents impact the ability to communicate effectively 

or develop impact assessments, risk analysis, and hazard modeling can provide reasonable 

operational assumptions for responders. 

 Recovery: Recovery is well-established to ensure that as whole communities transitioning out of 

response are positioned to find themselves prepared in organizing and planning for major 

reconstruction and redevelopment necessary for recovery. As response activities and Emergency 

Support Function (ESF) requirements diminish, the recovery activities take center stage and the 

ESFs transition to the Recovery Support Functions (RSF), which take over the operational 

activities that are associated with the recovery. The transition from ESF to RSF is dependent 

upon the situation. 
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Organization 

The Response FIOP strives to provide an integrated approach to synchronize planning efforts and 

clarify roles and responsibilities. This is consistent with applicable statutory and other local, state, 

tribal, territorial, insular area, and Federal laws across local, state, tribal, territorial, insular area, and 

Federal entities, private sector organizations, and NGOs engaged in disaster or emergency 

operations. The FIOP serves as a foundation for more detailed Federal department and agencyspecific plans and operating procedures. 

To promote integration and alignment, each core capability includes the CTs defined by the National 

Preparedness Goal and the NRF. Corresponding core capability mission objectives (MO) outline the 

requirements for achieving the CTs. Each of the MOs is supported by end states delineated in each 

operational phase. The end state for each phase serves as a strategic performance metric that each 

Federal response partner can use to align plans and expectations. Encouraging the whole community 

to leverage opportunities to build resilience and mitigation pre- and post-disaster, such as continuity 

of operations planning, will avoid prolonging or producing more extensive, deeper, and longer-term 

losses. 

The Response FIOP is composed of the following main sections: 

 The base plan describes the policies and concept of operations for how the Federal Government

will support local, state, tribal, territorial, and insular area government response efforts. It also

summarizes Federal responsibilities, planning assumptions, response operations, and short-term

recovery operations.

 The functional annexes describe the overarching mission, concept of operations, tasks, and

coordinating structure for each of the 15 Response core capabilities identified in the National

Preparedness Goal. The FIOP organizes some of the elements as appendices under an annex due

to the operational role the core capability or element provides in implementing the mission of the

overarching annex. This role is described in the purpose section of the annex and/or appendix, as

appropriate. The location of the functional annexes and associated appendices are listed in Table

3.
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Table 3: Functional Annexes by Core Capability 

Annex Core Capability

Annex A ESF to Core Capability Matrix

Annex B Planning

Appendix 1: Risk Management

Appendix 2: Situational Assessment

Appendix 3: Geospatial

Annex C Operational Coordination

Appendix 1: Public Information and Warning

Appendix 2: Public Health, Healthcare, and Emergency Medical Services

Appendix 3: Environmental Response/Health and Safety

Appendix 4: Fatality Management Services

Appendix 5: Infrastructure Systems

Appendix 6: Mass Care Services

Appendix 7: Mass Search and Rescue Operations

Appendix 8: On-scene Security, Protection, and Law Enforcement

Appendix 9: Fire Management and Suppression

Appendix 10: Synchronization Matrix

Annex D Logistics and Supply Chain Management (Operational Support)

Appendix 1: Critical Transportation

Annex E Operational Communications

 The incident-specific annexes will be included in future Response FIOP updates, as appropriate.

These annexes will expand the concepts within the Response FIOP to better describe the

missions, policies, responsibilities, and coordination processes across incident management and

emergency response operations for a wide spectrum of potential notice or no-notice incidents,

which require specialized or unique responses. Incident-specific annexes from the NRF remain in

effect until such time that they are incorporated into the Response FIOP.

Situation 

Risk is the potential for an unwanted outcome resulting from an incident, event, or occurrence, as 

determined by its likelihood and the associated consequences. Risk is assessed based on applicable 

threats and hazards, vulnerabilities, and consequences. The Strategic National Risk Assessment 

(SNRA) identified the threats and hazards that pose the greatest risk to the Nation and provided the 

basis for establishing the National Preparedness Goal and the core capability requirements for all 

mission areas. The SNRA affirmed the need for the Response FIOP’s all-hazards, capability-based 

approach to preparedness planning. 

For the purpose of Response FIOP development, the impacts of multiple catastrophic incidents with 

cascading effects were identified, analyzed, and combined to create an operational environment for 

planning purposes. The catastrophic incident could occur anywhere within the United States or its 
Response Federal Interagency Operational Plan 

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territories, across multiple regions; involve multiple urban communities; and result in a substantial 

number of fatalities and injuries, widespread property loss, and the disruption of essential services 

across a large geographic area. The occurrence of such an incident would have significant short- and 

long-term ramifications on the political, economic, social, environmental, logistical, technical, legal, 

and administrative structures within the impacted area and, to a lesser extent, on the Nation. The 

response to the incident will require the capabilities of the Nation, to include local, state, tribal, 

territorial, insular area, and Federal assets; public and private sector resources; NGOs; and 

individuals at large, in order to save and sustain lives, protect property and the environment, and 

meet basic human needs. 

During and after an incident, survivors within the impacted area include people from diverse 

cultures, races, and nations of origin; individuals who do not read, have LEP, or are non-English 

speaking; individuals with access and functional needs, such as individuals with disabilities; people 

with physical, sensory, behavioral and mental health, intellectual, developmental and cognitive 

disabilities, including individuals who live in the community and individuals who are 

institutionalized; older adults with and without disabilities; children with and without disabilities and 

their parents; individuals who are economically or transportation disadvantaged; women who are 

pregnant; individuals who have acute and chronic medical conditions; and those with 

pharmacological dependency. 

The affected population also includes individuals with household pets and service and assistance 

animals. The requirements for transporting and arranging for shelter and care of animals when they 

need to be relocated from their homes are of significant importance. 

Mission and Scope 

Mission 

The Response FIOP enables Federal departments and agencies and whole community partners, in 

support of local, state, tribal, territorial, and insular area governments, to effectively respond to all 

types of incidents that require the capabilities of the Nation. Federal response operations focus on the 

capabilities necessary to save lives; protect property and the environment; meet basic human needs; 

stabilize the incident; restore basic services and community functionality; establish a safe, secure, 

and accessible environment for responders and response operations; and support the transition to 

long-term recovery. Continuity planning ensures the uninterrupted ability to engage partners; respond 

appropriately with scaled, flexible, and adaptable operational capabilities; specify succession to 

office and delegations of authority to protect the unity of effort and command; and to account for the 

availability of responders regardless of the threat or hazard. The desired end state for Federal incident 

response is achieved when local, state, tribal, territorial, and insular area entities no longer require the 

support of the Federal Government to provide lifesaving or life-sustaining support, thereby allowing 

for the transition to long-term recovery. With that mission in mind, this Response FIOP enables 

Federal departments and agencies to effectively respond to all types of incidents that require the 

capabilities of the Nation. 

Scope 

The Response FIOP describes how the Federal Government coordinates its efforts to save lives, 

protect property, and preserve the environment in response to or anticipation of an incident. Federal 

departments and agencies initiate this mission by engaging with whole community partners to 

identify and prioritize needed Federal response support capabilities and actions within 24 to 72 hours 

following an incident. Specifically, this FIOP addresses the CTs, responsibilities, resourcing, 
Response Federal Interagency Operational Plan 

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personnel, and sourcing requirements to accomplish Federal response objectives across Federal 

departments and agencies. 

The Response FIOP is designed to address a notice or no-notice incident. The Response FIOP base 

plan and core capability-specific functional annexes primarily address a no-notice incident where the 

need for Federal support is obvious and immediate, where anticipatory planning and resource prepositioning were precluded, and where the exact nature of resources and the exact nature of the 

incident is not known. When there is time to plan for the response to a potentially catastrophic 

incident, proactive disaster response operations can occur. The tasks and capabilities described in the 

Response FIOP functional annexes are meant to represent potential Federal resources available for 

incident response. The incident-specific annexes of the Response FIOP will expand the concepts 

within the FIOP to better describe the missions, policies, responsibilities, and coordination processes 

across incident management and emergency response operations encompassing a wide spectrum of 

potential incidents requiring specialized or unique responses. 

Planning Assumptions and Critical Considerations 

The following information represents the planning assumptions and critical considerations used in 

the development of the Response FIOP. Assumptions and/or considerations that pertain to only a 

specific core capability or a specific incident are delineated in its respective functional or incidentspecific annex and/or appendix. 

Planning Assumptions 

In absence of facts, planning assumptions represent information deemed to be true and are necessary 

in order to facilitate planning development efforts. Assumptions are a baseline set for planning 

purposes, and they do not take the place of specific activities or decision points that would occur 

during an incident. 

The following planning assumptions assist in the development of an operational environment for this 

FIOP. During response operations, assumptions are validated as facts, as necessary. Incident-specific 

annex planning assumptions, which address non-Stafford Act and Stafford Act incidents, may vary 

from those listed below. 

 Multiple catastrophic incidents or attacks will occur with little or no warning. 

 Any incident that may possibly be a terrorist incident (i.e., not clearly caused by natural events) 

will be treated as an actual terrorist incident, until determined otherwise, by the Attorney 

General. With that mission in mind, this Response FIOP enables Federal departments and 

agencies to effectively respond to all types of incidents that require the capabilities of the Nation. 

 Within their statutory authorities, Federal departments and agencies will take all necessary 

and appropriate action to provide lifesaving and life-sustaining assistance to those impacted 

by any incident. 

 There is only one catastrophic incident occurring at a time. 

 There will be cascading effects associated with the incident. 

 Resources will not reach the entire impacted population. 

 Inter- and intra-local, state, tribal, territorial, and insular area mutual aid capabilities will be 

exhausted. 
Response Federal Interagency Operational Plan 

10

 A Presidential Major Disaster Declaration is issued under the authority of the Stafford Act, 

including concurrent response, recovery, and mitigation activities. 

 The incident response will require specialized equipment and adjustments to processes, priorities, 

and procedures, as appropriate to the operational environment. 

 Federal departments and agencies will coordinate and take action under their own statutory 

authorities and/or under the Stafford Act, as appropriate. 

 Existing Federal department and agency statutory or mission responsibilities will reduce the 

timeliness and limit capacity of Federal resources. 

 Situational awareness of the operational environment will be incomplete. 

 Critical transportation routes and infrastructure will be disrupted by the incident or by secondary 

effects, such as populace movement and emergency response efforts. 

 Few Federal community-based resources within the impacted area will be able to respond. 

 Deployment-dependent Federal response resources will be unable to arrive and provide 

significant lifesaving or life-sustaining capabilities until 24 to 72 hours after the incident. 

 Contractor-provided services are limited by the capacity of the private sector to support contract 

needs. 

 A large number of people in the affected population will have disabilities or access and 

functional needs, requiring physical, programmatic, and/or communication access. 

Critical Considerations 

Critical considerations are elements of information that must be taken into account when developing 

a plan. Incident-specific annex planning considerations, which address non-Stafford Act and Stafford 

Act incidents, may vary from those listed below. 

 Federal departments and agencies are permitted to deploy personnel and resources under their 

own authority or under the authority of the Stafford Act. 

 Travel restrictions implemented by local, state, tribal, territorial, insular area, or Federal 

authorities or the private sector will impact response operations. 

 Personnel deployed by Federal departments and agencies will require temporary housing, food, 

fuel, sanitation, and water during response operations. 

 Human and/or animal disease and/or illness may develop within the affected area. 

 Computer and communications systems, which incorporate electronic information, networks, and 

their services within the incident area, could potentially be inoperable, degraded, or include 

features that preclude local, state, tribal, territorial, insular area, and Federal collaboration. 

 The Stafford Act authorizes the President to direct any executive branch department and agency 

to engage in lifesaving and life-sustaining activities. 

 Departments and agencies conducting other mission area activities with adjusting priorities may 

assume risk for their own personnel when operating in hazardous environments. 

 The Defense Production Act is the primary source of Presidential authorities to expedite and 

expand the supply of critical resources, services, and facilities from the U.S. industrial base to 

support the national defense. The term “national defense” includes emergency preparedness 
Response Federal Interagency Operational Plan 

11

measures conducted pursuant to Title VI of the Stafford Act and the protection and restoration of 

critical infrastructure. 
Response Federal Interagency Operational Plan 

12

Concept of Operations

Incidents are typically handled with regard to minimizing loss of life and damage to property in a 

graduated response with appropriate local, regional, and Federal resources. All jurisdictions should 

utilize NIMS principles to manage response operations. Some local governments may require 

additional support from neighboring jurisdictions or state governments. The impacted state(s) will 

activate their incident management/response support architecture for the provision of additional 

resources to the extent that state capabilities (e.g., Emergency Management Assistance Compact 

[EMAC] and other arrangements through which non-Federal capabilities additional to organic state 

capabilities are made available) can permit. 

Coordination of Federal Response Activities 

The Federal Government maintains a wide range of capabilities and resources that may be required to 

deal with domestic incidents in order to save lives and protect property and the environment while 

ensuring the protection of privacy, civil rights, and civil liberties. To be successful, any approach to 

the delivery of Response capabilities will require an all-of-Nation approach. All Federal departments 

and agencies must cooperate with one another, and with local, state, tribal, territorial, and insular area 

governments, community members, and the private sector to the maximum extent possible. 

Regardless of the type of incident, the President leads the Federal Government’s response efforts to 

ensure that necessary resources are applied quickly and efficiently to manage the incident. Different 

Federal departments or agencies lead coordination of the Federal Government’s response depending 

on the type and magnitude of the incident and are also supported by other agencies who bring their 

relevant capabilities to bear to support those affected. For example, FEMA leads and coordinates 

Federal response and assistance when the President declares a major disaster or emergency under the 

Stafford Act. The Department of Health and Human Services (HHS) leads the Federal public health 

and medical response to public health emergencies and emergencies under the NRF in accordance 

with its own independent authorities. 

Figure 2 depicts how authority for response activities is dependent upon the incident. Federal 

departments or agencies may lead or coordinate responses under their own inherent statutory 

authorities. Pursuant to Presidential directive, the Secretary of Homeland Security is the principal 

Federal official for domestic incident management.5 The same presidential directive also 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. 

Per Executive Order 12148, the Secretary of Homeland Security has been delegated most of the 

functions given to the President under the Stafford Act. The Secretary, in turn, has delegated those 

responsibilities to the FEMA Administrator. With the Stafford Act responsibilities and additional 

authorities under the Homeland Security Act of 2002, as amended by the Post-Katrina Emergency 

Management Reform Act, the FEMA Administrator coordinates response operations and tasks and 

funds other Federal departments and agencies that would not otherwise have been authorized to 

 

5

 Except for those activities that may interfere with the authority of the Attorney General or the FBI Director, as 

described in PPD-8.
Response Federal Interagency Operational Plan 

13

provide support to save lives and protect property. Presidential directives and Stafford Act authorities 

delegated by the President under Executive Order 12148 work in conjunction with each other. 

Figure 2: Authorities for Coordination of Federal Response Support 

Provision of Federal Response Capabilities 

The degree of Federal support for response depends on the severity of the incident; the authorities 

invoked; and the ability of local, state, tribal, territorial, and insular area entities to manage the 

incident and any associated cascading incidents. Federal response operations leverage expertise and 

resources from stakeholders at all levels, both governmental and nongovernmental, and incorporate a 

range of preparedness, response, and recovery elements. 

Resources and capabilities including emergency teams, support personnel, specialized equipment, 

operating facilities, and assistance programs are delivered through the Response core capabilities, 

which organize the essential elements of Federal support and coordination. ESFs, each led by a 

Primary Agency, are the coordination mechanisms for the delivery of each of the core capabilities 

under a Stafford Act response. Specific ESF missions, organizational relationships, and Primary and 

Support Agency responsibilities are defined in the ESFs, as well as other plan annexes or appendices. 
Response Federal Interagency Operational Plan 

14

Table 4: Default Phased Posture 6

1a 1b 1c 2a 2b 2c 3a

Normal 

Operations

Increased 

Likelihood or 

Elevated Threat

Credible 

Threat

Activation, Situational 

Assessment, and 

Movement

Employment of 

Resources and 

Stabilization

Intermediate 

Operations

Long-Term 

Recovery 

Operations

During Phase 1 (Pre-Incident), local, state, tribal, territorial, insular area, and Federal entities 

determine existing logistics and resource capabilities, develop deliberate plans and procedures, and 

conduct training and exercises to validate existing plans. In addition, continuity operations and 

planning need to be incorporated to facilitate the performance of response core capabilities during all 

hazards emergencies or other situations that may disrupt normal operations. Phase 1 consists of three 

sub-phases, which range from steady-state operations to the positioning of resources prior to the 

occurrence of an incident. Actions taken during Phase 1 are focused on awareness, preparedness, 

mitigation, and protection. During a notice incident, there may be an elevated threat (Phase 1b) and 

credible threat (Phase 1c) for which response actions must be taken and will be detailed in incidentspecific annexes, as warranted. Phase 2 (Response) consists of the immediate response, deployment 

of resources and personnel, and sustained response operations. Phase 3a refers to recovery activities 

that occur as a part of the Response mission area to facilitate the transition and support to the 

Recovery mission area. Phase 3a includes short-term recovery operations (e.g., repopulation of the 

impacted area) and long-term recovery operations (e.g., transition to ongoing recovery and mitigation 

activities). In many incidents, no clear transition exists from one phase to the next, and phases may 

run concurrently. As such, during incidents that affect multiple states and/or FEMA regions, different 

jurisdictions may transition through the phases at various paces depending on the impact to the 

respective geographical area. 

Response operations require collaboration across the Prevention, Protection, Mitigation, Response, 

and Recovery mission areas to ensure proper integration. Across all mission areas, lifesaving and 

life-sustaining activities remain the priority during an incident response. When possible, Federal 

interagency partners may utilize agency resources and authorities to prepare for an incident, as well 

as to initiate appropriate preparatory and mitigating measures to reduce vulnerabilities. Mitigation 

opportunities are evaluated throughout disaster operations, as decisions made during response and 

recovery operations can enhance or hinder subsequent mitigation activities. Once an incident occurs, 

the priority shifts from preparedness activities to immediate and short-term response activities to 

preserve life, property, the environment, and the social, economic, and political structure of the 

community. Recovery operations are initiated, as appropriate and per the Recovery FIOP, based on 

local, state, tribal, territorial, and insular area needs. The transition from response to recovery will not 

impede response operations. Both operations will closely coordinate to prevent duplicative activities 

and promote the efficient leveraging of resources. 

Activities conducted under the Response mission must be consistent with all pertinent statutes and 

policies, particularly those involving civil and human rights, such as the Americans with Disabilities 

Act of 1990, Rehabilitation Act of 1973, and Title VI of the Civil Rights Act of 1964. 

 

6

 Oil and hazmat responses under the National Oil and Hazardous Substances Pollution Contingency Plan (as 

described in the Oil/Chem Incident Annex) are considered under phases as described in that plan. 
Response Federal Interagency Operational Plan 

15

Coordinating and Delivering Response Core Capabilities 

The response to a catastrophic incident, and any cascading effects, requires a coordinated effort 

involving local, state, tribal, territorial, insular area, and Federal governments, NGOs, and private 

sector partners. All response partners, organized by ESF, utilize NIMS to facilitate usage of a 

common terminology, including the establishment of plain language (clear text) communications 

standards, accessible and actionable effective communication for whole community access, 

integrated communications, unified command structure, and comprehensive resource management to 

ensure effective coordination between all stakeholders. 

Emergency Support Functions 

ESFs are the primary, but not exclusive, Federal coordinating mechanisms for building, sustaining, 

and delivering the Response core capabilities. The Federal ESFs are the vital structures for 

responding to Stafford Act incidents. These structures may also be used for Federal-to-Federal 

support responses or some non-Stafford Act Federal responses such as organizing select Federal 

operations during National Special Security Events to be prepared for a potential incident. However, 

for most non-Stafford Act incidents, structures other than ESFs are used by the lead Federal agencies. 

Departments and agencies use NIMS structures that are appropriate to their authorities. Federal ESFs 

bring together the capabilities of Federal departments and agencies and other national-level assets. 

Federal ESFs are not based on the capabilities of a single department or agency, but represent groups 

of organizations that work together to deliver core capabilities and support effective response 

operations. Federal ESFs also support a number of responsibilities and actions that extend beyond the 

scope of Response core capabilities. 

ESFs may selectively be activated by FEMA for Stafford Act incidents or as directed by the 

Secretary of Homeland Security to support activities for both Stafford Act and non-Stafford Act 

incidents. Not all incidents requiring Federal support result in the activation of ESFs. Federal 

departments and agencies acting under their own legal authority may request the Department of 

Homeland Security (DHS) to activate relevant ESFs. Pursuant to Presidential directive, the Secretary 

of Homeland Security coordinates with the head of the department or agency with primary legal 

authority but retains the authority to activate ESFs or other coordinating structures, as appropriate. 

Federal ESF coordinators oversee the preparedness activities for a particular ESF and coordinate with 

the ESF’s Primary and Support Agencies. The following roles and responsibilities are applicable to 

all participating Federal departments and agencies: 

 Recruit, equip, train, and credential personnel; exercise; capture lessons learned; and refine 

department and agency plans and procedures. 

 Conduct contingency and operational planning in conjunction with local, state, tribal, territorial, 

insular area, and Federal governments; the private sector; and NGO partners. 

 As an ESF Primary or Support Agency, prepare the Federal ESFs at the national and regional 

levels to support and sustain the overall Federal coordinating structures established at the 

National Response Coordination Center (NRCC), the Regional Response Coordination Centers 

(RRCC), and appropriate Joint Field Office (JFO). 

 Maintain shared situational awareness via an established common operating picture. 

 Synchronize information sharing and disseminate appropriate information using established 

systems and channels to facilitate maximum benefit and timeliness of delivery to policymakers, 

responders, and the public. 
Response Federal Interagency Operational Plan 

16

 Ensure the safety and health of personnel by developing and communicating a health and safety

plan, ensuring proper training, and providing appropriate personal protective equipment (PPE).

 Participate in the development of a comprehensive public information program that ensures that

the Federal Government speaks with one voice through each phase of an incident and is

accessible to the whole community.

 Conduct continuity, contingency and operational planning in conjunction with local, state, tribal,

territorial, insular area, and Federal governments; the private sector; and NGO partners to

maintain the ability to respond during all situations.

Request for Federal Support under the Stafford Act 

Federal assistance to save lives; protect property and the environment; and meet basic human needs 

may be available to the states under the Stafford Act and other Federal authorities. Under some 

Federal laws, Federal response actions may be taken without a request from the state. When an 

incident is anticipated to exceed local, state, tribal, territorial, or insular area resources, the Governor7

of a state or Chief Executive of a federally-recognized Indian tribe may request Federal support 

through the Stafford Act or other authorities. The Stafford Act authorizes the President to provide 

financial and other support to local, state, tribal, territorial, and insular area governments to support 

response, recovery, and mitigation efforts following a Presidential Emergency or Major Disaster 

Declaration. Prior to requesting a declaration under the Stafford Act, the Governor or Tribal Chief 

Executive must find that the situation is of such severity and magnitude that effective response is 

beyond the capabilities of the state/tribe and the affected local governments and that Federal 

assistance is necessary. In addition, the Governor or Chief Executive must take appropriate response 

action under state/tribal law and direct execution of the state’s/tribe’s emergency operations plan.

The completed request, addressed to the President, is submitted through the Federal Emergency 

Management Agency (FEMA) Regional Administrator, who evaluates the request and makes a 

recommendation to the FEMA Administrator. The FEMA Administrator, in coordination with the 

Secretary of Homeland Security, then makes a recommendation to the President. The Governor 

and/or Chief Executive, appropriate members of Congress, and Federal departments and agencies are 

immediately notified of a Presidential declaration. 

Prior to and during catastrophic incidents, especially those that occur with little or no notice, the 

Federal Government may mobilize and deploy assets in anticipation of a formal request from a 

state or tribal government for Federal support. Proactive efforts are intended to ensure that Federal 

resources reach the impacted area in time to assist in restoring any disruption of normal functions 

of local, state, tribal, territorial, and insular area governments and are done in coordination and 

collaboration with governmental entities, the private sector, and NGOs, when possible. 

7

“Governor” is used throughout this document to refer to the chief executive of states, territories, and insular areas. 

Non-Stafford Act Federal Response Capabilities 

Federal departments or agencies may conduct Federal response actions under their own non-Stafford 

Act authorities using funding sources other than the Disaster Relief Fund (e.g., mutual assistance 

agreements) and do not require a Stafford Act declaration. The NRF provides additional guidance on 

departments’ and agencies’ roles and responsibilities.

Under some Federal authorities, tribal or local governments may also seek assistance directly from 

the Federal Government for non-Stafford Act incidents. Immediate lifesaving assistance to states, as
Response Federal Interagency Operational Plan 

17

Resource Management 

The disciplined and coordinated structures and processes described in the Response FIOP must be 

able to surge resources from the whole community. Public-private sector engagement highlights the 

various roles the private sector plays in emergency management, including: 

 Serving as a partner in preparedness by cooperating in planning efforts, training, and exercises

with governmental partners

 Providing the government with sector-specific information during a disaster

 Providing resources that the private sector may have to support emergency response efforts

 Serving as a significant component and partner to the restoration of the economy.

The number, type, and source of resources must be capable of expanding rapidly to meet the 

changing needs associated with a given incident and its cascading effects. The Response FIOP 

includes a “push-pull” strategy to distribute resources. When necessary, FEMA’s Logistics 

Management Directorate may push commodities to the incident area for field activities. Once the 

Region has developed and communicated a response strategy, resource distribution reverts to a pull 

strategy for sustainment that supports regional requests for resources. 

Delegating control of Federal resources enables officials at various levels to organize, plan, and 

utilize resources necessary to accomplish incident objectives. Agencies retain statutory and 

regulatory control of their assigned resources throughout the incident response. The FEMA 

Administrator and regional administrators delegate control of their own resources to the Federal 

Coordinating Officer (FCO) when he or she is designated and mission capable. The FCO then 

manages and directs assigned FEMA resources to accomplish incident objectives. The authority to 

control, direct, and assign resources to accomplish incident objectives remains at the incident level. 

The prioritization and adjudication of resources is based on support requirements of leadership in the 

incident area; Federal facilities and field teams; and local, state, tribal, territorial, and insular area 

emergency operations centers. 

As needs grow and change, responders and response processes must remain adaptable. When 

traditional resources are exhausted or not available, atypical lifesaving and life-sustaining resources 

are utilized to meet operational requirements. To meet personnel shortages, community members 

may often be the primary source of manpower in the first hours and days after a catastrophic 

incident. Given the scope and magnitude of a catastrophic incident involving cascading incidents, 

legal, policy, and regulatory waivers/exemptions/exceptions may be required to achieve many of the 

response goals and objectives. Waivers granted during any phase or any mission area may have an 

impact on economic recovery.8 As incidents stabilize, response efforts must be flexible to support the 

transition of resources from response to recovery. 

Additional concept of support information is available in Annex D. 

8

 Any such waivers, exceptions, and exemptions must be consistent with laws that preserve human and civil rights 

and protect individuals with access and functional needs, such as individuals with disabilities. 

well as other types of assistance, such as wildland firefighting support or response to an agricultural 

disease or cybersecurity incident, are performed by Federal departments or agencies under their own 

authorities and funding or through reciprocal mutual assistance agreements and do not require a 

Stafford Act declaration. 
Response Federal Interagency Operational Plan 

18

Key Federal Decisions 

The following list of key Federal decisions includes a broad range of major decision items during 

Response FIOP implementation: 

 Heads of Federal departments and agencies with statutory authority for Response FIOP

operations activate and deploy Federal resources or teams to the impacted area in anticipation of

or in response to an incident and in coordination with local, state, tribal, territorial, and insular

area governments and private entities.

 Pursuant to a Governor’s or (Tribal) Chief Executive’s request, the President of the United States

determines the need to declare an emergency or major disaster under the Stafford Act.

 If a Stafford Act declaration is made, the President will appoint an FCO for each affected state,

tribe, or territory to lead Federal support efforts. The FCO serves in the JFO and works with the

State Coordinating Officer to meet local, state, tribal, territorial, and insular area assistance

requirements and priorities.9

 When an incident is anticipated to exceed local, state, tribal, territorial, or insular area resources,

the Governor of a state or Chief Executive of a federally-recognized Indian tribe may request

Federal support through the Stafford Act or other authorities.

 For a declaration other than under the Stafford Act or for a request for Federal-to-Federal

support, the President, in coordination with the appropriate heads of Federal departments and

agencies, will determine the lead Federal agency and funding mechanism for disaster or

emergency operations, as necessary.

 When activated, the NRCC and appropriate RRCCs, including FEMA personnel and all ESFs,

will coordinate with the FEMA Region(s) to determine and provide needed resources and policy

guidance to support the response.

 If a JFO is established, decisions on location, staffing, program priorities, and demobilization

will be required.

 Decision to invoke expanded authorities, such as the Defense Production Act, policy changes,

waivers, and regulatory relief.

9

 The term State Coordinating Officer is used to describe the official appointed by the chief executive of a state, 

commonwealth, territory, federally-recognized tribe, or insular area to coordinate disaster assistance efforts with 

those of the Federal Government. Federally-recognized tribes having lands within an affected state can elect to work 

through the state’s State Coordinating Officer or appoint a separate official to serve as the tribe’s State Coordinating 

Officer (sometimes referred to as a Tribal Coordinating Officer) to work directly with Federal partners. 
Response Federal Interagency Operational Plan 

19

Critical Information Requirements 

Critical information requirements (CIR) facilitate timely command, control, and coordination 

decisions during disaster operations. They provide insight into important details that response 

personnel need to know to effectively manage and execute their operations. CIRs are identified at the 

time of the incident based on the scope of the incident and the response. The Unified Coordination 

Group (UCG) will define what their CIRs are and those will be incorporated into the Information 

Collection Plan. CIRs are answered through the acquisition and assembly of one or more essential 

elements of information. More information regarding the essential elements of information that 

support CIRs is available in Appendix 2 to Annex B. 

Senior-level decision makers responsible for leading response operations have CIRs related to the 

following categories: 

 CIR #1—Facts, Estimates, and Projections about the Threat, Incident, or Event

 CIR #2—Readiness, Preparedness, and Mitigation

 CIR #3—Critical Authorities

 CIR #4—Lifesaving and Critical Resources/Shortages

 CIR #5—Damage and Restoration Estimates

 CIR #6—Status of Personnel and General Public

 CIR #7—Health and Safety Concerns and Estimates

 CIR #8—Response and Recovery Organization and Leadership

 CIR #9—Recovery and Impacts

 CIR #10—Public Information Guidance

 CIR #11—Weather and Seas.

Coordinating Instructions 

The President leads the Federal Government response effort to ensure that the necessary resources 

are applied quickly and efficiently to large-scale and catastrophic incidents. All Federal departments 

and agencies must cooperate with one another, and with local, state, tribal, territorial, and insular area 

governments, community members, and the private sector to the maximum extent possible. Although 

Federal disaster assistance is often considered synonymous with Presidential declarations under the 

Stafford Act, Federal assistance can actually be provided to state and local jurisdictions, as well as to 

other Federal departments and agencies, through a number of different mechanisms and authorities. 

For Stafford Act incidents, the Secretary of Homeland Security will coordinate Federal operations for 

domestic incident management, pursuant to Presidential directive. The FEMA Administrator’s duties 

include assisting the President, through the Secretary, in carrying out the Stafford Act responsibilities 

and executing FEMA’s emergency management authorities established in the Homeland Security 

Act, as amended, including primary responsibility for Federal emergency management response, 

recovery, and mitigation operations. The Administrator shall also provide coordination for all Federal 

interagency partners in support of response operations. 
Response Federal Interagency Operational Plan 

20

The DHS National Operations Center (NOC) is the principle operations center for DHS and provides 

situational awareness and a common operating picture for the entire Federal Government, and for 

local, state, and tribal governments as appropriate, in the event of a natural disaster, act of terrorism, 

or other manmade disaster, and ensures that critical terrorism and disaster-related information 

reaches government decision makers. The NRCC, an operational component of the NOC, provides 

operational support to field-deployed resources to ensure synchronized Federal operations and to 

resolve issues regarding national resources. The NRCC can be utilized during both Stafford Act and 

non-Stafford Act incidents. Prior to the designated FCO taking operational control, the RRCC will 

coordinate Federal support to local, state, tribal, territorial, or insular area jurisdictions. The FCO, in 

cooperation with the UCG, when established, directs the activities of the JFO. 

The Federal Bureau of Investigation (FBI) manages prevention and counterterrorism operations 

through the Strategic Information and Operations Center (SIOC) and the 56 field offices’ Joint 

Operations Centers (JOC). The SIOC is the FBI’s worldwide operations and supports connectivity 

with other Federal operations centers, such as the DHS NOC, the DoD National Military Command 

Center (NMCC), and National Counterterrorism Center to rapidly gain and disseminate situational 

awareness and deploy resources as appropriate. This includes command and control of joint 

interagency investigative and domestic intelligence efforts led by the FBI On-scene Coordinators 

(OSC) through its JOCs. SIOC and JOCs ensure effective coordination and liaison with partner 

agencies, strategic communications, and coordination and information sharing with other leaders, as 

appropriate and in accordance with classification and legal requirements, to manage the threat. This 

includes command and control of joint interagency investigative and domestic intelligence efforts led 

by the FBI field offices. The FBI, through SIOC and its JOCs, ensures effective coordination and 

liaison with partner agencies, strategic communications, and coordination and information sharing 

with other mission area leaders, and in accordance with classification and legal requirements, to 

manage the threat. 

Unified coordination is organized, staffed, and managed in a manner consistent with NIMS principles 

using the Incident Command System structure. The UCG comprises senior leaders representing 

Federal and state interests and, in certain circumstances, local jurisdictions, tribal governments, and 

the private sector. UCG members must have significant jurisdictional responsibility and authority. 

For non-Stafford Act incidents, Federal response or assistance may be led or coordinated by various 

Federal departments and agencies consistent with their authorities. In non-Stafford Act incidents, 

Federal agencies that have responsibility for on-scene, tactical-level operations may establish 

incident command and area command structures or coordinate with local, state, tribal, territorial, or 

insular area agencies to form unified incident command and unified area command structures. 

Federal Coordination with Local, State, Tribal, Territorial, and Insular Area 

Governments 

If a state anticipates that its resources may be exceeded, the Governor can request support from other 

states through mutual aid and assistance agreements, such as EMAC. A state does not have to 

exhaust mutual aid agreements before requesting Federal support. State mutual aid and assistance 

agreements will be coordinated in accordance with existing policies and procedures. 

The United States has a trust relationship with federally-recognized Indian tribes and recognizes their 

right to self-government. Tribal governments are responsible for coordinating resources to address 

actual or potential incidents. When tribal response resources are inadequate, Chief Executives of 

federally-recognized Indian tribes may seek assistance from states or the Federal Government. For 

certain types of Federal assistance, tribal governments work with the state in which they are located. 
Response Federal Interagency Operational Plan 

21

For other types of Federal support, as sovereign entities, tribal governments can elect to work directly 

with the Federal Government. The Stafford Act provides an option for the Chief Executive of a 

federally-recognized Indian tribe to make a direct request to the President for a major disaster or 

emergency declaration. 

Successful response activities under the Stafford Act are contingent on the following actions of local, 

state, tribal, territorial, and insular area entities: 

 Implement local, state, tribal, territorial, and insular area emergency operations plans 

 Formally request Federal support and appoint a State Coordinating Officer10

 Provide initial damage assessments 

 Coordinate state National Guard assets through the National Guard Joint Forces HeadquartersState and maintain communications between the National Guard at the state level and the 

Department of Defense through the National Guard Bureau

 Coordinate evacuation and sheltering of impacted communities 

 Coordinate local, state, tribal, territorial, and insular area activities with those of Federal 

authorities 

 Provide a method for local, state, tribal, territorial, and insular area deputation for Federal Law 

Enforcement 

 Coordinate with the RRCC or JFO regarding procedures for establishing specific local, state, 

tribal, territorial, and insular area communications with Federal entities 

 Ensure compliance with civil rights laws, including equal opportunity for individuals with 

disabilities (e.g., the use of physically accessible facilities; accessibility to all disaster-related 

programs, goods and services, and; accessible and actionable effective disaster communication—

to include initial notifications and emergency messaging and others with access and functional 

needs, those from religious and racial and ethnically diverse backgrounds, and people with LEP 

 Ensure compliance with environmental laws 

 Approve all mission assignments for direct Federal assistance through the State Coordinating 

Officer with approving authority 

 Coordinate local, state, tribal, territorial, and insular area activities with those of Federal 

authorities, including activation of continuity of operations plans, as necessary 

 Engage in response and recovery planning and execution in coordination with other local, state, 

tribal, territorial, insular area, and Federal departments and agencies. 

Federal Coordination with Nongovernmental Organizations 

Under the provisions of the NRF, NGOs (e.g., community-based, faith-based, or national 

organizations) and Voluntary Organizations Active in Disaster (VOAD) are partners in the Federal 

response to an incident, major disaster, or emergency. For Stafford Act incidents, or when requested 

for Federal-to-Federal support, FEMA’s Regional Voluntary Agency Liaisons (VAL) are responsible 

 

10 The term State Coordinating Officer is used to describe the official appointed by the chief executive of a state, 

commonwealth, territory, federally-recognized tribe, or insular area to coordinate disaster assistance efforts with 

those of the Federal Government. Federally-recognized tribes having lands within an affected state can elect to work 

through the state’s State Coordinating Officer or appoint a separate official to serve as the tribe’s State Coordinating 

Officer (sometimes referred to as a Tribal Coordinating Officer) to work directly with Federal partners. 
Response Federal Interagency Operational Plan 

22

for NGO and VOAD coordination as well as donations coordination. The DHS Surge Capacity Force 

also includes trained VAL reservists to augment the permanent full-time VALs. For non-Stafford Act 

incidents, the lead department or agency will coordinate with NGOs in accordance with their 

procedures and protocols. 

Response FIOP activities are contingent upon on the following actions of NGOs: 

 Integrate with the efforts of voluntary organizations and NGOs that provide mass care services, 

housing repair and rebuild, financial assistance, case management, counseling services, and other 

vital support services to support response and to facilitate the recovery of disaster survivors, 

including individuals with access and functional needs, such as individuals with disabilities, 

those with racially and ethnically diverse backgrounds, and people with LEP. 

 Train and manage volunteer and nongovernmental resources. 

Federal Coordination with the Private Sector 

Private sector organizations provide resources (through donations and/or with compensation) during 

an incident—including specialized teams, equipment, and advanced technologies—through local, 

public-private emergency plans, mutual aid agreements, or incident-specific requests from 

government and private sector volunteer initiatives. Response FIOP activities are contingent on the 

following actions of the private sector: 

 In coordination with the DHS Office of Infrastructure Protection and relevant Sector-Specific 

Agencies (SSA), collect and disseminate status updates on critical infrastructure operations, 

impact and consequences, and analyses and recommendations for restoring critical infrastructure. 

 In collaboration with the appropriate SSA, coordinate support through public-private 

partnerships, associations, and contractual agreements in responding to—and recovering from—a 

disaster or emergency. 

 In coordination with the NRCC and National Business Emergency Operations Center, provide 

status updates on private sector operational abilities and other relevant information. 

Administration, Funding, and Resources 

Administration 

Federal departments and agencies are responsible for managing their own financial activities during 

all operational phases and across all mission areas within their established processes and resources. 

The Financial Management Support Annex to the NRF provides basic financial management 

guidance for all Federal departments and agencies that provide support for incidents that require a 

coordinated Federal response. 

During a catastrophic event, Federal departments and agencies may waive a number of regulatory 

requirements and/or extend the deadlines for required reports and applications to assist survivors and 

ease economic impact. All department-, agency-, or program-specific actions must be authorized by 

statute. For example, Section 301 of the Stafford Act permits agencies to modify or waive 

administrative conditions for Federal assistance in the wake of a major disaster upon the request of 

local or state authorities. In other cases, waivers may require action by the President or passage of 

new legislation. However, any such waivers, exceptions, and exemptions, when applicable, must be 

consistent with laws that preserve human and civil rights and protect individuals with access and 

functional needs, such as individuals with disabilities, those with racially and ethnically diverse 

backgrounds, and people with LEP. 
Response Federal Interagency Operational Plan 

23

Responsibility for management and oversight of all administrative and logistic requirements 

supporting operations rests with the following: 

 FEMA is the Primary Agency for funding associated with Stafford Act incidents. 

 FEMA’s Office of the Chief Financial Officer is responsible for supporting disaster funding 

activities of domestic incident management and provides the core financial management 

functions in support of NRCC, RRCC, and JFO operations. 

 The senior financial advisor of each multiagency coordination center (NRCC, RRCC, and JFO) is 

responsible for the financial management, monitoring, and tracking of all Federal costs relating to 

the incident. 

 FEMA will initiate mission assignments to task and coordinate with other Federal departments 

and agencies to provide immediate, short-term emergency response support. Types of mission 

assignments include direct Federal assistance and Federal operations support. Although rarely 

exercised, it is important to note that FEMA retains the authority to mission assign agencies on a 

non-reimbursable basis. 

During a catastrophic, non-Stafford Act incident, the designated lead agency may coordinate with 

FEMA as needed to ensure an efficient and effective Federal response, consistent with individual 

department or agency direct authorities and responsibilities. 

This FIOP does not alter or affect the responsibilities of senior financial advisors in other Federal 

departments and agencies. When other Federal departments and agencies are operating programs 

under their own statutory authority and funding, there is an expectation that coordination among 

agencies with financial responsibilities will occur. 

Funding 

Federal funding to support coordinated Federal response operations will be consistent with applicable 

laws and authorities as detailed within the NRF Financial Management Support Annex. There are 

two types of funding for the coordination of Federal resources: Stafford Act and non-Stafford Act 

support. 

The Stafford Act authorizes the President to provide financial and other disaster and emergency 

support to local, state, tribal, territorial, and insular area governments; NGOs; and individuals to 

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

disaster declarations. 

The Stafford Act provides a legal framework for financial and material support. Use of disaster funds 

will be initiated by an emergency or major disaster declaration from the President. Before a major 

disaster or emergency declaration, the Stafford Act authorizes deployment and pre-positioning of 

personnel and equipment to reduce immediate threats to life, property, the public, employees, and 

responder health and safety and to improve the timeliness of its response in anticipation of a 

Presidential declaration. Their actions are limited to pre-deployment until a declaration is made. Prior 

to Stafford Act declarations, the FEMA Associate Administrator for Response and Recovery, the 

FEMA Chief Financial Officer, or their designees determine the required funding resources for the 

surge funding. FEMA is authorized to obligate surge funds to mobilize and deploy resources, as 

needed. 

For Stafford Act incidents, and as designated, resources and services are administered through the 

NRCC at the national level, the RRCC at the regional level, and the JFO at the field level. Examples 

of expenses that may be allowed under surge funding include: 
Response Federal Interagency Operational Plan 

24

 NRCC and RRCC activation 

 National-level and Regional-level Incident Management Team deployment 

 Salary, overtime, and travel expenses for temporary personnel, experts, and consultants appointed 

under Section 306 of the Stafford Act 

 Establishment of mobilization and staging areas 

 Staging of rescue, hazard assessment, or medical services teams 

 Staging of Inspection Services Contractor and deployment of Inspection Services Coordinator 

 Certain reimbursements to Federal entities supporting FEMA mission assignments. 

Funding guidance for non-Stafford Act incidents include the following: 

 Federal departments and agencies with their own response authorities may also have associated 

appropriations to fund their response, as well as mechanisms to fund supporting Federal agencies. 

These activities may also continue in coordination with Stafford Act activities. 

 Agencies that may have lead response roles are expected to establish in advance the 

administrative and fiscal mechanisms to request, receive, and reimburse Federal-to-Federal 

assistance. 

 A Federal entity with primary responsibility and statutory authority for handling an incident (i.e., 

the requesting agency) that needs support beyond its normal operations may request DHS 

coordination and facilitation through the NRF. 

 Generally, the requesting agency provides funding for the incident consistent with provisions of 

the Economy Act, unless other statutory authorities exist. When a Federal department or agency 

requests Federal-to-Federal support, DHS may coordinate support using the appropriate 

multiagency coordination structures in the NRF and in accordance with NIMS. 

 During non-Stafford Act incidents, a Federal department or agency requesting Federal-to-Federal 

support may request deployment of a FEMA comptroller, or they may use their own. The FEMA 

Administrator, Associate Administrator for Response and Recovery, the Regional Administrator, 

or the Regional Director may not approve reimbursement of costs incurred while performing 

work pursuant to disaster assistance authorities independent of the Stafford Act. 

Personnel Resources 

Federal departments and agencies are responsible for personnel augmentation to support operations 

under this FIOP. Each Federal department and agency possesses individual policies for personnel 

augmentation that is predicated on its authorities, various policies, memoranda of understanding, and 

mutual aid agreements. Federal departments and agencies must ensure that their employees who are 

engaged in incident response activities are able to perform in accordance with standard resource 

typing guidelines and operational requirements. In Stafford and non-Stafford Act incidents, each 

Federal department and agency will continue to maintain its roles and responsibilities in accordance 

with Federal laws and regulations. 
Response Federal Interagency Operational Plan 

25

Oversight, Plan Development, and Maintenance 

The authorities that guide the structure, development, and implementation of the Response FIOP are 

statutes, executive orders, regulations, and Presidential directives. Congress has provided the broad 

statutory authority necessary for this FIOP, and the President has issued executive orders and 

Presidential directives to supply direction to departments and agencies of the Executive Branch. 

The FEMA Administrator, in close coordination with the Secretary of Homeland Security, is the 

executive agent for Response FIOP management and maintenance. 

This FIOP will be regularly reviewed to evaluate consistency with both new and existing policies; 

evolving threats and hazards; and experience gained from use. Interagency partners will be engaged 

in the review and maintenance process for this FIOP. This FIOP will be reviewed on a quadrennial 

basis. The review and maintenance process may include developing incident-specific and classified 

annexes, which include the delivery schedule for federally-coordinated assets and resources, as 

appropriate. The FIOP will be updated periodically, as required, to incorporate new executive 

guidance and statutory and procedural changes, as well as lessons learned from exercises and actual 

incidents. Significant updates to the Response FIOP will be vetted through a Federal senior-level 

interagency review process. 
Response Federal Interagency Operational Plan 

26

Authorities and References 

The Response FIOP does not alter or impede local, state, tribal, territorial, insular area, or Federal 

entities from carrying out their specific authorities or performing their responsibilities under all 

applicable laws, executive orders, regulations, and directives. Nothing in this Response FIOP is 

intended to interfere with the authorities of any departments or agencies with regard to the direction, 

conduct, control, planning, organization, equipment, training, exercises, or other activities. 

This FIOP is applicable to Federal departments and agencies providing support under the National 

Response Framework, for both events covered by the Stafford Act as well as certain non-Stafford 

Act support, and it is intended to be consistent with U.S. laws, policies, and other related 

requirements. 

This document is not intended to, and does not create any right or benefit, substantive or procedural, 

enforceable at law or equity, against the United States, its departments, agencies, or other entities, its 

officers or employees, or any other person. 

Federal departments require state and local jurisdictions receiving Federal funding to ensure people 

with disabilities are not discriminated against in federally-funded programs and activities as required 

by the Americans with Disabilities Act and the Rehabilitation Act.
Response Federal Interagency Operational Plan 

A-1 

Annex A: Emergency Support Function to Core Capability 

Matrix 

Purpose 

The purpose of the Emergency Support Function (ESF) to Core Capability Matrix is to illustrate the 

connection between the ESFs and the corresponding core capabilities they support. The matrix 

depicts each ESF in relation to the core capabilities it aligns to and the assigned responsibilities for 

each core capability. The ESF to Core Capability Matrix shows the ESF roles as they pertain to the 

National Response Framework (NRF). ESFs are the primary, but not exclusive, Federal coordinating 

mechanisms for building, sustaining, and delivering the Response core capabilities. 

Situation 

If local, state, tribal, territorial, and insular area resources become exhausted in the wake of a disaster 

or emergency, additional resources must be acquired to continue supporting response efforts. The 

ESFs provide the structure for coordinating Federal interagency collaboration and support during 

Federal response operations under a Stafford Act response or as requested under a Federal-to-Federal 

support. ESFs or other structures can be used for non-Stafford Act responses. 

Mission 

Federal interagency partners will work together within the ESF structure to meet the assigned 

responsibilities for each of the core capabilities their ESF aligns to when providing support to an 

impacted area and its population. Agencies who may have lead response roles are expected to 

establish in advance the administrative and fiscal mechanisms to request, receive, and reimburse 

Federal-to-Federal assistance. 

ESF to Core Capability Matrix 

The delivery of response is dependent upon complex systems. The ESF coordinating structure is 

integrated to deliver core capabilities. The effective delivery of a core capability by an ESF is often 

dependent upon actions by one or more core capabilities and/or by multiple ESFs. 

The ESF construct is a model that many jurisdictions have adopted and tailored to their functions or 

stakeholders. Local, state, tribal, territorial, and insular area jurisdictions establish ESFs based on 

their specific requirements; however, there is no mandatory or direct linkage to the 14 Federal ESFs. 

Local, state, tribal, territorial, and insular area jurisdictions with ESFs are encouraged to engage nontraditional members of the whole community as part of their ESF processes. The following section 

provides a summary of each ESF’s overall mission, as delineated by the NRF.

11

 ESF #1—Transportation provides support by assisting local, state, tribal, territorial, insular 

area, and Federal government entities, voluntary organizations, nongovernmental organizations 

(NGO), and the private sector in the management of transportation systems and infrastructure 

during domestic threats or in response to incidents. 

 ESF #2—Communications supports the restoration of the communications infrastructure, 

coordinates communications support to response efforts, facilitates the delivery of information to 

 

11 ESF #14 has been removed in accordance with the National Disaster Recovery Framework. 
Response Federal Interagency Operational Plan 

A-2 

emergency management decision makers, and assists in the stabilization and reestablishment of 

systems and applications. 

 ESF #3—Public Works and Engineering coordinates and organizes the resources of the 

Federal Government to facilitate the delivery of multiple core capabilities. 

 ESF #4—Firefighting provides Federal support for the detection and suppression of wildland, 

rural, and urban fires resulting from, or occurring coincidentally with, an all-hazards incident 

requiring a coordinated national response for assistance. 

 ESF #5—Information and Planning collects, analyzes, processes, and disseminates information 

about a potential or actual incident and conducts planning activities to facilitate the overall 

activities in providing assistance to the whole community. 

 ESF #6—Mass Care, Emergency Assistance, Temporary Housing, and Human Services

coordinates and provides life-sustaining resources, essential services, and statutory programs 

when the needs of disaster survivors exceed local, state, tribal, territorial, and insular area 

government capabilities. 

 ESF #7—Logistics integrates whole community logistics incident planning and support for 

timely and efficient delivery of supplies, equipment, services, and facilities. It also facilitates 

comprehensive logistics planning, technical assistance, training, education, exercise, incident 

response, and sustainment that leverage the capabilities and resources of Federal logistics 

partners, public and private stakeholders, and NGOs in support of both responders and disaster 

survivors. 

 ESF #8—Public Health and Medical Services provides the mechanism for Federal assistance 

to supplement local, state, tribal, territorial, and insular area resources in response to a disaster, 

emergency, or incident that may lead to a public health, medical, behavioral, or human service 

emergency, including those that have international implications. 

 ESF #9—Search and Rescue rapidly deploys Federal search and rescue (SAR) resources to 

provide lifesaving assistance to local, state, tribal, territorial, and insular area authorities, to 

include local SAR coordinators and mission coordinators, when there is an actual or anticipated 

request for Federal SAR assistance. 

 ESF #10—Oil and Hazardous Materials Response provides Federal support in response to an 

actual or potential discharge and/or release of oil or hazardous materials when activated, 

including assessment, stabilization, and cleanup of environmental contamination resulting from 

oil or hazardous materials releases and management of wastes. 

 ESF #11—Agriculture and Natural Resources organizes and coordinates Federal support for 

the protection of the Nation’s agricultural, natural, and cultural resources during national 

emergencies. ESF #11 works during actual and potential incidents to provide supplemental 

nutrition assistance; respond to animal and agricultural health issues; provide technical expertise; 

coordinate and support animal and agricultural emergency management; ensure the safety and 

defense of the Nation’s supply of meat, poultry, and processed egg products; and ensure the 

protection of natural and cultural resources and historic properties. 

 ESF #12—Energy facilitates the restoration of damaged energy systems and components when 

activated by the Secretary of Homeland Security for incidents requiring a coordinated Federal 

response under the Stafford Act. The term “energy” includes producing, storing, refining, 

transporting, generating, transmitting, conserving, building, distributing, maintaining, and 

controlling energy and system components. 
Response Federal Interagency Operational Plan 

A-3 

 ESF #13—Public Safety and Security provides Federal public safety and security assistance to 

local, state, tribal, territorial, and insular area law enforcement organizations overwhelmed by the 

results of an actual or anticipated natural disaster or an act of terrorism. 

 ESF #14 has been replaced by the National Disaster Recovery Framework. 

 ESF #15—External Affairs provides accurate, coordinated, timely, and accessible information 

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

including children, individuals with disabilities, individuals with limited English proficiency 

(LEP), and others with access and functional needs. 

Table A-1 illustrates the correlation between the ESFs and the assigned responsibilities for each core 

capability to which the ESFs are most closely aligned. The tasks listed in Table A-1 are based on the 

NRF ESFs’ annexes. 

The ESF to core capability table is not inclusive of all ESF and core capability relationships. For 

example, all ESFs support the delivery of Planning, Public Information and Warning, and 

Operational Coordination core capabilities. 

Table A-1: ESF to Core Capability Alignment 

ESF #1—

Transportation

Responsibilities

Critical 

Transportation

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

and infrastructure.

 Identify temporary alternative transportation solutions to be implemented 

when primary systems or routes are unavailable or overwhelmed.

 Implement appropriate air traffic and airspace management measures.

 Coordinate regulatory waivers, exemptions, and permits.

 Provide longer-term coordination of the restoration and recovery of the 

affected transportation systems and infrastructure if required.

ESF #2—

Communications

Responsibilities

Operational 

Communications

 Ensure the capacity to communicate with both the emergency response 

community and the affected populations and establish interoperable voice 

and data communications between local, state, tribal, territorial, insular 

area, and Federal first responders.

 Reestablish a sufficient communications infrastructure within the affected 

areas to support ongoing life-sustaining activities, provide basic human 

needs, including the needs of individuals with access and functional needs, 

such as individuals with disabilities, and transition to recovery.
Response Federal Interagency Operational Plan 

A-4 

ESF #3—Public 

Works and 

Engineering

Responsibilities

Critical 

Transportation

 Provide coordination, response, and technical assistance to affect the rapid 

recovery and reconstitution of critical waterways, channels, and ports to 

include vessel removal, significant marine debris removal, emergency 

dredging, and hydrographic surveys.

 Clear debris from roads to facilitate response and recovery operations.

 For incidents involving a blast or explosion associated with a chemical, 

biological, radiological, or nuclear (CBRN) threat agent resulting in a 

contaminated debris field, leads Federal actions to clear critical 

transportation routes of CBRN-contaminated debris, during the emergency 

phase, in consultation with ESF #10. ESF #10 assumes leadership for 

management of CBRN-contaminated debris after the emergency phase is 

over.

11

Environmental 

Response/Health 

and Safety

 Collect, segregate, and transport to an appropriate staging or disposal 

site(s) hazardous materials that are incidental to building demolition debris, 

such as household hazardous waste and oil and gas from small motorized 

equipment; remove and dispose of chlorofluorocarbon from appliances; and 

remove, recycle, and dispose of electronic goods.

 For incidents involving a blast or explosion associated with a CBRN threat 

agent resulting in a contaminated debris field, ESF #3, in consultation with 

ESF #10 and the Federal Emergency Management Agency (FEMA):

 Provide structural specialist expertise to support inspection of damaged 

CBRN-contaminated infrastructure and employ temporary stabilization 

measures or take other actions as necessary to address structural 

instability concerns.

 Perform demolitions after a determination is made that a building is 

unstable and creates an imminent hazard to workers and/or after ESF 

#10, in conjunction with other appropriate local, state, tribal, territorial, 

insular area, and Federal authorities, make a determination that 

demolition is the desired cleanup approach.

Infrastructure 

Systems

 Prepare for potential public works and engineering requirements. Activities 

include providing public information, contributing to shared situational 

awareness, establishing response teams, leveraging technological tools, 

training, and exercising with partners, establishing private sector contracts 

and agreements, and coordinating with volunteer organizations and other 

non-government partners.

 Conduct pre-incident and post-incident assessment of public works and 

infrastructure.

 Execute emergency contract support for lifesaving and life-sustaining 

services.

 Provide emergency repair of damaged public infrastructure and critical 

facilities.

 Support restoration of critical navigation, flood control, and other water 

infrastructure systems, including drinking water distribution and wastewater 

utilities.

 Provide assessment and emergency response for water, wastewater 

treatment facilities, levees, dams, buildings, bridges, and other 

infrastructure.
Response Federal Interagency Operational Plan 

A-5 

ESF #3—Public 

Works and 

Engineering

Responsibilities

 Provide temporary emergency power to critical facilities (e.g., hospitals, 

water treatment plants, shelters, fire/police stations).

 Construct temporary critical public facilities to temporarily replace destroyed 

or damaged facilities following a disaster (e.g., schools, local government 

offices, fire stations, police stations, and medical facilities) in coordination 

with ESF #6.

 Provide assistance in the monitoring and stabilization of damaged 

structures and the demolition of structures designated as immediate 

hazards to public health and safety.

 Provide structural specialist expertise to support inspection of mass care 

facilities and urban SAR operations in coordination with ESF #9.

 Manage, monitor, and/or provide technical advice in the clearance, removal, 

and disposal of debris from public property and the reestablishment of 

ground and water routes into impacted areas. For purposes of ESF #3, the 

term “debris” includes general construction debris that may contain inherent 

building material contaminants, such as asbestos or paint. Debris may 

include livestock or poultry carcasses and/or plant materials.

 Provide technical assistance to include engineering expertise, construction 

management, contracting, real estate services, and inspection of 

private/commercial structures.

 Provide engineering and construction expertise, response, supplies, and 

equipment to address flooding to include providing advance measures in 

anticipation of imminent severe flooding.

 Provide technical assistance in partnership with disability integration 

advisors regarding access and mitigation projects for people with disabilities 

according to requirements in the Architectural Barriers and Americans with 

Disabilities Acts.

Fatality 

Management 

Services

 Manage debris to facilitate the fatality recovery efforts to include 

establishing a system for sorting debris and recovering human remains.

 Provide construction and engineering support for temporary morgues.

Mass Care Services  Provide construction, engineering, and project management expertise and 

support for temporary housing and sheltering ensuring accessibility for 

those with disabilities and others with access and functional needs to 

include management of temporary roofing support following hurricane 

disasters.

 Inspect mass care shelter sites to ensure suitability and accessibility of 

facilities to safely shelter survivors.

 Construct temporary shelter facilities, including accessible shelters, in the 

affected area, as required.

Logistics and 

Supply Chain 

Management

 Execute emergency contract support for lifesaving and life-sustaining 

services
Response Federal Interagency Operational Plan 

A-6 

ESF #3—Public 

Works and 

Engineering

Responsibilities

Mass Search and 

Rescue Operations

 Provide specially trained and equipped structural engineers to augment 

FEMA urban SAR task forces, Incident Support Teams, military technical 

rescue organizations, and general purpose troops during structural collapse 

incidents and other disaster response missions.

 Provide debris removal equipment and expertise to support SAR 

operations, as required.

ESF #4—

Firefighting

Responsibilities

Critical 

Transportation

 Provide engineering and contracting/procurement personnel and equipment 

to assist in emergency removal of debris, demolition, and repair of roads 

and bridges.

 Provide resources (personnel and equipment) necessary to clear fallen 

trees, brush and debris from state, county, and city roads to facilitate 

emergency access in disaster area.

Environmental 

Response/Health 

and Safety

 Measure, evaluate, and monitor the impact of the emergency incident on 

National Forest System and Department of the Interior lands.

 Provide technical assistance and logistical support.

Fire Management

and Suppression

 Provide resources (personnel and equipment) necessary to support 

wildland, rural, and urban firefighting operations.

Infrastructure 

Systems

 Provide engineering and contracting/procurement personnel and equipment 

to assist in emergency removal of debris, demolition, and temporary repair 

of essential public facilities, water supply, and sanitation.

 Provide expertise and personnel to assist with assessment of emergency 

services sector critical infrastructure.

Mass Care Services  Provide appropriate resources (e.g., cots, blankets, sleeping bags,

personnel) for shelters.

Mass Search and 

Rescue Operations

 Provide equipment and supplies from the National Interagency Cache 

System and use of the National Interagency Fire Center contract aircraft 

during incidents, based on standby agreements and contingency plans.

On-scene Security, 

Protection, and Law 

Enforcement

 Provide trained public safety, law enforcement, investigations, and security 

resources if appropriate authority is provided.

Operational 

Communications

 Provide radio communications systems to support firefighters, law 

enforcement officers, and incident response operations.

 Provide engineers, technicians, and liaison staff to assist the Department of 

Homeland Security (DHS), FEMA, and Office of Cybersecurity and 

communications

 Provide National Interagency Radio Support systems for use by damage 

reconnaissance teams and other applications.

 Provide appropriate communications personnel to accompany radio 

systems for user training and operator maintenance indoctrination.
Response Federal Interagency Operational Plan 

A-7 

ESF #4—

Firefighting

Responsibilities

Public Health, 

Healthcare, and 

Emergency Medical 

Services

 Provide appropriate personnel, equipment, and supplies, primarily for 

communications and aircraft for deployed Federal Public Health, 

Healthcare, and Emergency Medical Services teams.

Logistics and 

Supply Chain 

Management

 Obtain an initial fire situation and damage assessment through incident 

awareness and assessment and other information gathering procedures; 

determines the appropriate management response to meet the request for 

assistance; and obtains and distributes, through appropriate channels, 

incident contact information to emergency responders mobilized through 

ESF #4.

 Analyze each request before committing people and other resources; 

ensures employees will be provided with appropriate vaccinations, 

credentials, and personal protective equipment (PPE) to operate in the allhazards environment to which they are assigned; and ensures that all 

employees involved in all-hazards response will be supported and managed 

by an agency leader, agency liaison, or interagency Incident Management 

Team.

 Ensure that an all-hazards, incident-specific briefing and training are 

accomplished prior to task implementation. This preparation will usually 

occur prior to mobilization where incident description, mission requirements, 

and known hazards are addressed. Key protective equipment and 

associated needs for tasks that employees do not routinely encounter or 

perform will be identified.

 Provide command, control, and coordination resources, to include Incident 

Management Teams, area command teams, and multiagency coordination 

group support personnel, to local, state, tribal, territorial, insular area, and 

Federal agencies in support of emergency operations.

 Provide staff to support incident facilities, property, telecommunications, 

and transportation management.

 Provide direct liaison with local, state, tribal, territorial, and insular area 

emergency operations centers and fire chiefs in the designated area, as 

appropriate.

 Provide support to enhance the resilience of local, state, tribal, territorial, 

and insular area firefighting agencies.

ESF #5—

Information and 

Planning

Responsibilities

Planning  During an actual or potential incident, coordinate and conduct planning 

activities.

Public Information 

and Warning

 Provide information for the development of credible, culturally appropriate, 

and accessible messages to inform ongoing emergency services and the 
Response Federal Interagency Operational Plan 

A-8 

ESF #5—

Information and 

Planning

Responsibilities

public about protective measures and other life-sustaining actions and 

facilitate the transition to recovery.

12, 13

Situational 

Assessment

 Maintain situational awareness of an incident.

 Provide an informational link to members of the whole community.

 Serve as the centralized conduit for situational reports, geospatial data, and 

other decision support tools.

 Provide decision-relevant information regarding the nature and extent of an 

incident, as well as cascading effects, in support of a potential or actual 

coordinated Federal response.

ESF #6—Mass Care, 

Emergency 

Assistance, 

Temporary 

Housing, and 

Human Services

Responsibilities

Critical 

Transportation

 Support the collection, analysis, dissemination, and reporting of 

transportation infrastructure damage from ESF #6 service delivery sites.

 Identify requirements and request transportation resources for the delivery 

of life-sustaining supplies and services to the affected area(s).

 Identify critical transportation requirements for survivors with disabilities and 

others with access and functional needs.

 Support mobilization and implementation of mechanisms to track the 

movement of evacuees, resources, household pets, individuals with service 

and assistance animals, medical equipment and luggage.

 Provide mass care support to survivors at embarkation, debarkation and 

reception centers, evacuation transportation hubs, post-decontamination 

areas, etc., to make sure that basic needs are met, including hydration and 

feeding, tracking, and information. 

 Provide resources, subject matter expertise, and coordination with other 

FEMA components and ESF #6 partners to support mass evacuation 

activities and ensure the safe evacuation of household pets and service and 

assistance animals. (Note: Evacuees who have chronic medical conditions 

may be evacuated with the general population. For evacuations of patients, 

refer to ESF #8.)

 Communicate plans, requirements, and strategies to core capability service 

providers.

 Acquire and manage resources, supplies, and services from core capability 

service providers via contracts, mission assignments, interagency 

agreements (IAA), and donations.

 

12 Consistent with Appendix 1 to Annex C (Public Information and Warning), as well as the Mitigation and 

Recovery FIOPs, the development of “credible, culturally appropriate, and accessible messages” includes the 

development of linguistically appropriate messages. 

13 The President of the United States has directed the Secretary of Homeland Security and the Attorney General to 

coordinate with each other to execute key responsibilities that provide public information and warning to the Nation 

regarding terrorist threats and attacks. 
Response Federal Interagency Operational Plan 

A-9 

ESF #6—Mass Care, 

Emergency 

Assistance, 

Temporary 

Housing, and 

Human Services

Responsibilities

 Validate NGO requirements for transportation assistance and other critical 

limited resources (e.g., fuel) and coordinate with the Movement 

Coordination Center (MCC) to provide transportation of NGO resources to 

staging areas. Coordinate the deployment of NGOs in collaboration with the 

responding departments and agencies (e.g., the American Red Cross, 

Southern Baptists, The Salvation Army) mobile feeding units, and kitchens 

to staging areas.

Fatality 

Management 

Services

 Provide mechanisms to support notification of family members to make 

appropriate arrangements for deceased relatives.

 Provide support and funding for crisis counseling services to the bereaved 

as well as for local, state, tribal, territorial, and insular area crisis counseling 

programs.

 Provide transportation and human services for survivors reuniting with 

deceased family members. 

 Communicate plans, requirements, and strategies to core capability service 

providers.

 Acquire and manage resources, supplies, and services from core capability

service providers via contracts, mission assignments, IAAs, and donations.

Mass Care Services  Support local, state, tribal, territorial, and insular area governments and 

NGOs in the coordination and provision of mass care, emergency 

assistance, temporary housing, and human services resources, programs, 

and services.

 Provide life-sustaining services to the affected population including 

sheltering, feeding, hydration, distribution of emergency supplies, support 

for household pets and service and assistance animals and reunification 

services.

 Support the establishment, management, and operation of congregate and 

non-congregate facilities.

 Coordinate the provision of transportation with local, state, tribal, territorial, 

and insular area governments and NGOs to facilitate the return of evacuees 

to their pre-disaster or alternate locations. 

 Develop an initial temporary housing strategy to transition survivors from 

congregate to non-congregate alternatives and provide relocation 

assistance or interim housing solutions for households unable to return to 

their pre-disaster residence.

 Anticipate and identify current and future ESF #6 requirements in 

coordination with local, state, tribal, territorial, insular area, and Federal 

governments, NGOs, and private sector partners.

 Activate Federal ESF #6 data systems.

 Acquire, transport, and deliver ESF #6 resources and services to meet the 

needs of disaster survivors, including children, individuals with disabilities, 

and others with access and functional needs.

 Provide general care for separated/unaccompanied minors until they are 

placed in the care of appropriate authorities.
Response Federal Interagency Operational Plan 

A-10

ESF #6—Mass Care, 

Emergency 

Assistance, 

Temporary 

Housing, and 

Human Services

Responsibilities

 Support nontraditional congregate facilities.

 Provide technical assistance for the development of local, state, tribal, 

territorial, insular area, and Federal governments, NGOs, and private sector 

operational plans for mass care, emergency assistance, temporary housing, 

and human services.

Mass Care

 Sheltering: Provide life-sustaining services in congregate facilities that 

provide a safe, sanitary, and secure environment for individuals and 

households displaced by disasters, as well as support to survivors 

sheltering in place and in ESF #8 medical shelters.

 Feeding: Provide feeding services at fixed sites and distribution sites and 

through mobile feeding units. Feeding services may include hot or shelfstable meals, infant formula, baby food, snacks, beverages, and food 

packages, as well as diverse dietary and culturally appropriate meals (e.g., 

low sodium, low fat, vegetarian/vegan, halal, kosher). ESF #6 works in 

concert with ESF #11 and local, state, and tribal governments; NGOs; and 

the private sector to acquire, prepare, cook and/or distribute food and food 

supplies. Additional support may include the provision of technical 

assistance for the development of state feeding plans.

 Distribution of Emergency Supplies: Acquire and deliver life-sustaining 

resources, hygiene items—including infant and toddler hygiene items—, 

and cleanup items to meet the urgent needs of disaster survivors. Additional 

support includes transportation, warehousing, equipment, technical 

assistance, and other mission-critical services.

 Reunification Services: Provide facilitated assistance for children separated 

from their parents(s) /legal guardian(s), as well as adults with their families, 

due to disasters. Support reunification efforts at the local, state, tribal, 

territorial, and insular area levels with technical assistance.

Emergency Assistance

 Coordinate resources and emergency assistance in support of local, state, 

tribal, territorial, and insular area governments, NGOs, and the private 

sector.

 Voluntary Agency Coordination: Facilitate the coordination of NGOs, places 

of worship, and the private sector to ensure that capabilities resources and 

services are integrated into local, state, tribal, territorial, and insular area 

response.

 Voluntary and Donation Management: Coordinate unaffiliated organizations, 

volunteers and unsolicited donated goods to support all ESFs.

 Essential Community Relief Services: Coordinate and deliver debris 

removal from disaster survivors residences; sandbagging; mud-out; tearout; chainsaw work; warehouse management; transportation and 

distribution coordination; child care services; emotional and spiritual care 

and counseling; financial assistance; financial counseling; disaster-related 

case work and case management; and other essential services.

 Mass Evacuee Support: Support affected and host jurisdiction mass 

evacuation activities, including provision of mass care services and tracking 
Response Federal Interagency Operational Plan 

A-11

ESF #6—Mass Care, 

Emergency 

Assistance, 

Temporary 

Housing, and 

Human Services

Responsibilities

the movement of evacuees, their household pets, service animals, and 

medical equipment. If requested by a state, tribal, territorial, or insular area 

technical assistance and/or staff resources may be offered to support 

affected and host jurisdiction evacuee operations. Deploy resources to 

support affected and host jurisdiction evacuation operations to include mass 

evacuation tracking system kits and staff to provide technical assistance. In 

coordination with ESF #8, provides mass care services to medical patient 

evacuees. (Note: Evacuees who have chronic medical conditions may be 

evacuated with the general population. For evacuation of patients, refer to 

ESF #8.)

 Support for People with Disabilities and Access and Functional Needs: 

Coordinate and provide equipment, supplies, and services required to assist 

children and adults with disabilities and others with access and functional 

needs to maintain their independence.

 Household Pets and Service and Assistance Animals: Coordinate and 

provide rescue, transportation, shelter, reunification, care, and essential 

needs of household pets and service and assistance animals during 

response operations. Service animals are not pets and may not be 

separated from the individual with a disability or other access and functional 

need; service animals should be permitted anywhere the public goes and 

are permitted to remain with their owners in shelters.

 Nonconventional/Transitional Sheltering: Provide resources and technical 

assistance in support of local, state, tribal, territorial, and insular area 

governments and NGOs, when traditional sheltering is not available or 

feasible or the impact of the disaster is of such magnitude that extended 

shelter operations are required.

 Temporary Roof Repair: Provide quick repairs to damaged roofs on private 

homes, which allows residents to return to and remain in their homes while 

making permanent repairs.

Temporary Accessible Housing

 Repair Program: Provide financial assistance to homeowners or landlords 

for the repair of their primary residence, utilities, and residential 

infrastructure.

 Replacement Program: Provide financial assistance to homeowners to 

assist with the replacement of their destroyed primary residence.

 Housing Resource Databases: Identify housing resources from the private 

sector and other Federal agencies available to disaster survivors, including 

physically accessible housing options.

 Rental Assistance: Provide financial assistance to eligible disaster survivors 

for the rental of a housing resource.

 Transportation to Other Locations: Assist individuals and families relocating 

outside of the disaster area to locations where short- or long-term housing 

resources are available. Transportation services may also include returning 

survivors to their pre-disaster location.

 Direct Financial Housing: Make payments directly to landlords for a rental 

resource on behalf of disaster survivors.
Response Federal Interagency Operational Plan 

A-12

ESF #6—Mass Care, 

Emergency 

Assistance, 

Temporary 

Housing, and 

Human Services

Responsibilities

 Hotel/Motel Program: Provide temporary accommodations for eligible 

displaced survivors unable to return to their pre-disaster primary residence.

 Direct Housing Operations: Provide temporary housing units to survivors 

when other housing resources are not available. Units provided are 

appropriate to the needs of the community and include units accessible to 

those with disabilities and others with access and functional needs.

 Mortgage Relief: Issue moratoriums on foreclosures of federally-insured 

loans. Loan servicers provide special forbearances, loan modifications, 

refinancing, and waivers of late charges.

Human Services

 Human Services: Provide assistance to address the non-housing needs of 

individuals and families. Disability integration advisors (DIA) should be used 

to assist with Disaster Case Management, Unmet Needs, Access and 

Functional Need and other human service cases to help access disability 

specific community services and supports.

 Crisis Counseling: Provide crisis counseling, mental health, and other 

similar immediate, short-term psychological assistance to disaster survivors.

 Disaster Case Management: Assist eligible survivors with developing and 

carrying out a disaster recovery plan. Streamlines assistance, prevents 

duplication of benefits, and provides an efficient referral system.

 Legal Services: Provide low-income survivors with free legal advice.

 Unmet Needs: Help disaster survivors with medical, dental, funeral, 

personal property, transportation, moving and storage, and other expenses.

 Supplemental Nutrition Assistance: Provide eligible households with 

supplemental nutrition assistance through established programs when 

income is lost due to a declared disaster.

 Tax Relief: Local, state, tribal, territorial, insular area, and Federal 

governments provide reimbursement or tax relief to survivors with 

substantial verified disaster-caused losses.

 Unemployment Assistance: Provide survivors who have lost their jobs due 

to a disaster with unemployment benefits.

Logistics and

Supply Chain

Management

 Assess the need for and coordinate the provision of life-sustaining ESF #6 

services, resources, and supplies from government agencies, NGOs, and 

the private sector.

 Gather, assess, prioritize, coordinate, and communicate resource 

requirements.

 Provide subject matter expertise to identify resource requirements to meet 

the life-sustaining needs of disaster survivors and their household pets and 

service and assistance animals.

 Gather, assess, prioritize, and communicate relevant information.

 Communicate plans, requirements, and strategies to core capability 

providers.

 Acquire and manage resources, supplies, and services from core capability 

providers via contracts, mission assignments, IAAs, and donations.
Response Federal Interagency Operational Plan 

A-13

ESF #6—Mass Care, 

Emergency 

Assistance, 

Temporary 

Housing, and 

Human Services

Responsibilities

Public Health, 

Healthcare, and 

Emergency Medical 

Services

 Identify and communicate requirements for lifesaving and life-sustaining 

needs of disaster survivors and household pets and service and assistance 

animals.

 Coordinate with core capability service providers to ensure that ESF #6 

service delivery locations are appropriately provisioned and operated in a 

safe, sanitary, secure, and timely manner.

 Communicate plans, requirements, and strategies to core capability service 

providers.

 Acquire and manage resources, supplies, and services from core capability 

service providers via contracts, mission assignments, IAAs, and donations.

ESF #7—Logistics Responsibilities

Critical 

Transportation

 Management of transportation that includes equipment and procedures for 

moving material from storage facilities and vendors to incident casualties, 

particularly with emphasis on the surge and sustainment portions of 

response.

 Transportation management also includes providing services to include 

fulfilling requests from other Federal organizations.

Mass Care Services  Acquire and manage resources, supplies, and services from core capability 

providers via contracts, mission assignments, IAAs, and donations.

 Support the prioritization, coordination, and communication of mass care 

resources requirements.

 Communicate plan, requirements, and strategies to core capability 

providers.

 Support requirements for physically accessible sheltering, feeding, and 

related activities to support survivors of disasters, including individuals with 

access and functional needs, such as individuals with disabilities.

Operational 

Communications

 Coordinate the procurement of communications equipment and services.

Logistics and 

Supply Chain 

Management

 Coordination of resource support for survivors.

 Resource management that includes determining requirements, sourcing, 

ordering and replenishment, storage, and issuing of supplies and 

equipment.

 Facilities management that includes locating, selection, and acquisition of 

incident facilities, such as Joint Field Offices (JFO), as well as storage and 

distribution facilities.

 Establishment and operation of logistics support facilities to include the 

management of services related to lodging and feeding of incident support 

personnel.

 Management of electronic data interchanges to provide end-to-end visibility 

of response resources.
Response Federal Interagency Operational Plan 

A-14

ESF #7—Logistics Responsibilities

 Plan for transitional support to recovery operations concurrent with 

response operations.

 Provide logistical support to first response and other fire response (if 

required) services.

ESF #8—Public 

Health and Medical 

Services

Responsibilities

Critical 

Transportation

Patient Movement:

 Transports seriously ill, or injured patients and medical needs populations 

from point of injury or casualty collection points in the impacted area to 

designated reception facilities.

 Coordinates the Federal response in support of emergency triage and prehospital treatment, patient tracking, distribution, and patient return. This 

effort is coordinated with Federal and local, state, tribal, territorial, and 

insular area emergency medical services officials.

 Provides resources to assist in the movement of at-risk/medically fragile 

populations to shelter areas and with the sheltering of the special medical 

needs population that exceeds the state capacity.

 Provide private vendor ambulance support to assist in the movement of 

patients through the National Ambulance Contract. 

 Provides support for evacuating seriously ill, or injured patients though the 

National Disaster Medical System (NDMS), an interagency partnership 

between the Department of Health and Human Services (HHS), the 

Department of Homeland Security (DHS), the Department of Defense 

(DoD), and the Department of Veterans Affairs (VA). Support may include 

providing accessible transportation assets, operating and staffing NDMS 

patient collection points (e.g., aerial ports of embarkation (APOEs)), and/or 

establishing Federal Coordinating Centers (FCCs) that conduct patient 

reception at ports of debarkation (e.g., aerial ports of debarkation (APOD)). 

Federal support may also include processing and tracking patient 

movement from collection points to their final destination reception facilities 

through final disposition. (Note: DoD is responsible for tracking patients 

transported on DoD assets to the receiving FCC.

 Provides patient tracking from point of entry to final disposition.

 Provides capability to identify bed capacity for the purposes of bed 

allocation to NDMS designated Definitive Care Facility.

Environmental 

Response/Health 

and Safety

 Supports the Worker Safety and Health Support Annex, provides technical 

assistance, and conducts exposure assessments and risk management to 

control hazards for response workers and the public.

Fatality 

Management

Services

 Assists jurisdictional medico-legal authorities and law enforcement agencies 

in the tracking and documenting of human remains and associated personal 

effects; reducing the hazard presented by chemically, biologically, or 

radiologically contaminated human remains (when indicated and possible); 

establishing temporary morgue facilities; determining the cause and manner 

of death; collecting antemortem data in a compassionate and culturally 

competent fashion from authorized individuals; performing postmortem data 

collection and documentation; identifying human remains using scientific 

means (e.g., dental, pathology, anthropology, fingerprints, and, as 

indicated, DNA samples); preparing, processing, and returning human 
Response Federal Interagency Operational Plan 

A-15

ESF #8—Public 

Health and Medical 

Services

Responsibilities

remains and personal effects to the authorized person(s) when possible; 

and providing technical assistance and consultation on fatality management 

and mortuary affair services. 

 May provide behavioral health support to families of victims during the 

victim identification mortuary process. 

 May provide for temporary interment when permanent disposition options 

are not readily available.

Mass Care Services  Provides technical expertise and guidance on the public health issues of the 

medical needs population.

 Assists with applications for Federal benefits sponsored by HHS and 

ensures continuity of assistance services in affected states and in states 

hosting relocated populations.

 Provides support for the provision of case management and advocacy 

services.

 Provides support for human and/or veterinary mass care sheltering as 

resources are available.

Logistics and 

Supply Chain 

Management

Health, Medical, and Veterinary Equipment and Supplies

 Arranges for the procurement and transportation of equipment, supplies, 

diagnostic supplies, radiation detecting devices, and medical 

countermeasures, including assets from the Strategic National Stockpile 

(SNS), in support of immediate public health, medical, and veterinary 

response operations.

Blood and Tissues

 Monitors and ensures the safety, availability, and logistical requirements of 

blood, blood products, and tissue. This includes the ability of the existing 

supply chain resources to meet the manufacturing, testing, storage, and 

distribution of these products.

Public Health, 

Healthcare, and 

Emergency Medical 

Services

Health Surveillance

 Uses existing all-hazards surveillance systems to monitor the health of the 

general and medical needs population, as well as that of response workers, 

and identify emerging trends related to the disaster; carries out field studies 

and investigations; monitors injury and disease patterns and potential 

disease outbreaks, behavioral health concerns, blood, blood products, and 

tissue supply levels; and provides technical assistance and consultations on 

disease and injury prevention and precautions. Provides support to 

laboratory diagnostics and, through the Laboratory Response Network, 

provides a mechanism for laboratories to access additional resources when 

the capabilities or capacity have been exceeded.

Medical Surge

 Provides support for triage, patient treatment, and patient movement.

 Provides clinical public health and medical care specialists from the NDMS, 

U.S. Public Health Service, VA, and DoD to fill local, state, tribal, territorial, 

and insular area health professional needs.

 Coordinates with states to integrate Federal assets with civilian volunteers 

deployed from local, state, tribal, territorial, insular area, and other 

authorities, including those deployed through the Emergency System for 
Response Federal Interagency Operational Plan 

A-16

ESF #8—Public 

Health and Medical 

Services

Responsibilities

Advance Registration of Volunteer Health Professionals and the Medical 

Reserve Corps.

Patient Care

 Provides resources to support pre-hospital triage and treatment, inpatient 

hospital care, outpatient services, behavioral healthcare, medical-needs 

sheltering, pharmacy services, and dental care to victims with acute 

injury/illnesses or those who suffer from chronic illnesses/conditions.

 Assists with isolation and quarantine measures and with medical 

countermeasure and vaccine point of distribution operations (e.g., mass 

prophylaxis).

 Ensures appropriate patient confidentiality is maintained, including Health 

Insurance Portability and Accountability Act privacy and security standards, 

where applicable.

Assessment of Public Health/Medical Needs

 Supports national or regional teams to assess public health and medical 

needs. This function includes the assessment of the healthcare 

system/facility infrastructure.

Food Safety, Security, and Defense

 In coordination with ESF #11, may task HHS components and request 

assistance from other ESF #8 partner organizations to ensure the safety, 

security, and defense of federally-regulated foods.

Agriculture Safety and Security

 In coordination with ESF #11, ESF #8 may task components to ensure the 

health, safety, and security of livestock and food-producing animals, animal 

feed, and the safety of the manufacture and distribution of foods, drugs, and 

therapeutics given to animals used for human food production. ESF #8 may 

also provide veterinary assistance to ESF #11 for the care of research 

animals.

Safety and Security of Drugs, Biologics, and Medical Devices

 During response, provides advice to private industry regarding the safety 

and efficacy of drugs, biologics (including blood, blood products, tissues, 

and vaccines), medical devices (including radiation emitting and screening 

devices), and other products that may have been compromised during an 

incident and are HHS-regulated products.

All-Hazard Public Health and Medical Consultation, Technical Assistance, and 

Support

 Assesses public health, medical, and veterinary medical effects resulting 

from all hazards. Such tasks may include assessing exposures on the 

general population, including children and individuals with disabilities and 

others with access and functional needs; conducting field investigations, 

including collection and analysis of relevant samples; providing advice on 

protective actions related to direct human and animal exposures and on 

indirect exposure through contaminated food, drugs, water supply, and 

other media; and providing technical assistance and consultation on 

medical treatment, screening, and decontamination of injured or 

contaminated individuals. Provides for disaster-related health and 

behavioral health needs through direct services and/or referrals, as 

necessary.
Response Federal Interagency Operational Plan 

A-17

ESF #8—Public 

Health and Medical 

Services

Responsibilities

Vector Control

 Assesses the threat of vector-borne diseases.

 Conducts field investigations, including the collection and laboratory 

analysis of relevant samples; provides vector control equipment and 

supplies.

 Provides technical assistance and consultation on medical treatment of 

victims of vector-borne diseases.

Public Health Aspects of Potable Water/Wastewater and Solid Waste Disposal

 Assists in assessing potable water, wastewater, solid waste disposal, and 

other environmental health issues related to public health in establishments 

holding, preparing, and/or serving food, drugs, or medical devices at retail 

and medical facilities, as well as examining and responding to public health 

effects from contaminated water; conducting field investigations, including 

collection and laboratory analysis of relevant samples; providing equipment 

and supplies as needed; and providing technical assistance and 

consultation.

Veterinary Medical Support

 Provides veterinary medical support to treat ill or injured animals, and 

veterinary public health support through HHS National Veterinary Response 

Team and veterinary medical officers of the Commissioned Corps of the 

U.S. Public Health Service. ESF #8 is the primary Federal resource for 

treatment of ill or injured service animals, pets, working animals, laboratory 

animals, and livestock post-disaster.

 Under HHS statutory authority, conducts animal response to zoonotic 

diseases in order to protect human health.

 Supports the United States Department of Agriculture (USDA) and its 

authority to manage a foreign animal disease response with the resources 

listed above for livestock or poultry diseases exotic to the United States that 

are either not or only mildly zoonotic.

Public Information 

and Warning

Public Health and Medical Information:

 Coordinates the Federal public health and medical messaging with 

jurisdictional officials.

 Continuously acquires and assesses information on the incident. Sources of 

information may include state incident response authorities; officials of the 

responsible jurisdiction in charge of the disaster scene; and ESF #8 support 

departments, agencies, and organizations.

 Provides public health, behavioral health, disease, and injury prevention 

information that can be transmitted to members of the general public and 

responders who are located in or near affected areas in multiple and 

accessible formats and languages in a culturally and linguistically 

appropriate manner that is understandable to all appropriate populations, 

such as individuals with access and functional needs, those with limited 

English proficiency, pediatric populations, populations with disabilities and 

others with access and functional needs, the aging, and those with 

temporary or chronic medical conditions. 

 Supports a Joint Information Center in the release of general medical and 

public health response information to the public.
Response Federal Interagency Operational Plan 

A-18

ESF #9—Search 

and Rescue

Responsibilities

Mass Search and 

Rescue Operations

 Activate ESF #9 when an incident is anticipated or occurs that may result in 

a request for a unified SAR response to an affected area.

 Federal SAR responders assist and support local, state, tribal, territorial, 

and insular area SAR capabilities in incidents requiring a coordinated 

Federal response. No provision of this annex is to be construed as an 

obstruction to prompt and effective action by any agency to assist persons 

in distress.

 The ESF #9 response is scalable to meet the specific needs of each 

incident, based upon the nature and magnitude of the event, the 

suddenness of onset, and the capability of local SAR resources. Response 

resources are drawn from ESF #9 Primary and Support Agencies.

 ESF #9 SAR operations are conducted following the NRF and National SAR 

Plan.

 U.S. National SAR Supplement, Catastrophic Incident SAR Addendum, and 

other addenda that define SAR responsibilities and provide guidance to the 

Federal departments and agencies with civil SAR mandates.

 National SAR Plan: The National SAR Plan is the policy guidance of the 

signatory Federal departments and agencies for coordinating SAR 

services to meet domestic needs and international commitments.

 U.S. National SAR Supplement: This document provides implementation 

guidance on the International Aeronautical and Maritime SAR Manual and 

the National SAR Plan.

 Catastrophic Incident SAR Addendum to the U.S. National SAR 

Supplement: This document provides a description of the unified SAR 

response to catastrophic incidents, guides Federal authorities involved in 

the response, and informs local, state, tribal, territorial, and insular area 

authorities on what to expect of/from Federal SAR responders.

 ESF #9 may operate under the Economy Act when there is no Stafford Act 

declaration.

 For every incident, the ESF #9 coordinator assesses the specific SAR 

requirements and assigns one of the four Primary Agencies as the Overall 

Primary Agency for SAR for that particular incident. Designation is 

dependent upon incident circumstances and the type of response required.

 When assigned as the Overall Primary Agency for a particular incident, that 

organization conducts the following actions:

 Coordinate planning and operations between Primary and Support 

Agencies.

 Coordinate resolution of conflicting operational demands for SAR 

response resources.

 Provide representation to appropriate incident facilities (e.g., National 

Response Coordination Center, Regional Response Coordination Center, 

JFO, emergency operations centers).

 All ESF #9 Primary Agencies provide support to the designated Overall 

Primary Agency as required.
Response Federal Interagency Operational Plan 

A-19

ESF #10—Oil and 

Hazardous 

Materials Response

Responsibilities

Critical 

Transportation

 For incidents where transportation infrastructure or routes are contaminated 

by oil or hazardous materials, help to identify safe evacuation and ingress 

routes; assess the nature and extent of contamination; and clean up and/or 

decontaminate infrastructure and routes.

 For incidents involving a blast or explosion associated with a CBRN threat 

agent resulting in a contaminated debris field, ESF #3—Public Works and 

Engineering leads Federal actions to clear critical transportation routes of 

CBRN-contaminated debris during the emergency phase, in consultation 

with ESF #10. ESF #10 assumes leadership for management of CBRN 

contaminated debris after the emergency phase is over.

Environmental 

Response/Health 

and Safety

 Conduct actions to detect and assess the nature and extent of oil and 

hazardous materials releases.

 Take action as appropriate to stabilize the release and prevent the spread 

of contamination; conduct environmental cleanup actions and 

decontaminate buildings and structures; and manage wastes.

 Follow applicable health and safety requirements for ESF #10 responders 

and coordinate, as needed, with Worker Health and Safety Support Annex 

response activities.

Infrastructure 

Systems

 For incidents where infrastructure is contaminated by oil or hazardous 

materials, assess the nature and extent of contamination and clean up 

and/or decontaminate infrastructure.

Public Information 

and Warning

 Provide the technical expertise to support the preparation of Federal public 

information related to the environmental response in support of ESF #15.

 It is recognized, however, that, in some cases, it may be necessary for 

responding Environmental Protection Agency and U.S. Coast Guard Onscene Coordinators to communicate with the media/public on tactical 

operations and matters affecting public health and safety directly from the 

scene, particularly during the early stages of the emergency response.

ESF #11—

Agriculture and 

Natural Resources

Responsibilities

Critical 

Transportation

Natural and Cultural Resources and Historic Properties

 In support of response operations for damaged bridges, roads, roads, 

culverts, borrow pits, and ditches:

 Conduct surveys and evaluations for archaeological resources, historic 

structures, cultural landscapes, biological resources, wetlands, and 

critical habitat.

 Assess, evaluate, and make recommendations for both natural and 

cultural resources to mitigate damage from incidents and reduce impacts 

to these resources resulting from repair, road surveying, and construction.

 Provide monitors to protect sensitive resources during response 

operations.

 Assist with environmental compliance:

 Section 106 of the National Historic Preservation Act.
Response Federal Interagency Operational Plan 

A-20

ESF #11—

Agriculture and 

Natural Resources

Responsibilities

 Threatened and Endangered Species Consultation.

 Migratory Bird Treaty Act, Magnuson-Stevens Act, Coastal 

Management Zone, etc.

 Provide liaisons to coordinate with tribal governments to ensure 

tribal/reservation roads, bridges, and other critical transportation resources 

are intact and safe for travel. Ensure that tribal projects meet all compliance 

regulations for both natural and cultural resources.

 Supplemental Nutrition Assistance.

 Provide USDA Foods to state agencies for distribution to shelters and other 

mass feeding sites and, in certain limited situations, household distribution.

 Provide infant formula and baby food to supplement FEMA’s infant/toddler 

kits.

 Evacuation of animals, including household pets, service and assistance 

animals.

 Facilitate whole community multiagency coordination with NGOs (e.g., the 

National Animal Rescue and sheltering Coalition and the National 

Alliance of State Animal and Agriculture Emergency Programs) to support 

animal evacuations.

Environmental 

Response/Health 

and Safety

Natural and Cultural Resources and Historic Properties Resource Protection

 Coordinate with ESF #10 on the removal of debris affecting natural and 

cultural resources and historic properties (NCH) when that debris is 

contaminated by oil or hazardous materials.

 Through the U.S. Geological Survey and the National Wildlife Health 

Center, serve as the Federal lead on zoonotic and wildlife diseases.

 Assist with environmental compliance:

 Section 106 of the National Historic Preservation Act.

 Threatened and Endangered Species Consultation.

 Migratory Species Act, Magnuson-Stevens Act, Coastal Management 

Zone, etc.

 Perform assessments and surveys to assist with planning and operational 

decisions (e.g., inform temporary housing and sheltering plans).

 Monitor response activities.

 Monitor environmental conditions and conduct sampling.

 Provide technical advice on mitigation impacts of identified contaminates 

and recommend cleanup actions to minimize damage to sensitive resources 

from response activities.

 Comment on debris removal plans to minimize the impact on sensitive 

environmental resources.

 Provide technical assistance, guidance, best management practices, and 

consultation on a wide range of response actions including guidance on 

threatened and endangered species.

Infrastructure 

Systems

Natural and Cultural Resources and Historic Properties Resources Protection

 Assist with environmental compliance:

 Section 106 of the National Historic Preservation Act.
Response Federal Interagency Operational Plan 

A-21

ESF #11—

Agriculture and 

Natural Resources

Responsibilities

 Threatened and Endangered Species Consultation.

 Migratory Species Act, Magnuson-Stevens Act, Coastal Management 

Zone, etc.

 Perform assessments and surveys to assist with planning and operational 

decisions.

 Monitor response operations to protect sensitive resources.

 Provide technical advice on mitigating impacts of operations and 

recommend response actions to minimize damage to natural and cultural 

resources.

 Provide DHS/FEMA and other agencies with technical guidance and best 

management practices.

 Coordinate with ESF #3 on the removal of debris (when classified as debris) 

affecting NCH.

Animals (including Household Pets and Service and Assistance Animals):

 Support ESF #6 to coordinate an integrated Federal response to meet the 

mass care and emergency assistance needs of owners and their animals, 

including household pets and service and assistance animals.

 Facilitate whole community multiagency coordination with NGO agencies 

for animal response activities (including household pets and service and 

assistance animals).

 Provide technical assistance and subject matter expertise to local, state, 

tribal, territorial, insular area, and Federal governments and NGOs, 

regarding household pet and service and assistance animal issues.

 Coordinate need assessments for animal response, including household 

pets, and service and assistance animals and provide technical support for 

evacuee support evacuation and emergency sheltering.

Mass Care Services Nutrition Assistance

 Determine nutrition assistance needs.

 Identify and obtain appropriate food supplies.

 Arrange transportation for food supplies.

 Authorize the Disaster Supplemental Nutrition Assistance Program (Dfoods).

Natural and Cultural Resources and Historic Properties Resources Protection

 Assist in data collection and information analysis to inform decisions on 

placement of temporary housing sites and staging areas and mitigate 

possible damage to natural and cultural resources.

 Conduct surveys of wetlands, archeological sites, and biological 

assessments to assist with evaluating sites to inform planning and 

operational decisions.

Animals (including Household Pets and Service and Assistance Animals) 

Mass Care and Emergency Assistance

 Support ESF #6 to coordinate an integrated Federal response to meet the 

mass care and emergency assistance needs of animals, including 

household pets, service and assistance animals and their owners.

 Facilitate whole community multiagency coordination with NGO agencies 

for animal response activities.
Response Federal Interagency Operational Plan 

A-22

ESF #11—

Agriculture and 

Natural Resources

Responsibilities

 Provide technical assistance and subject matter expertise to local, state, 

tribal, territorial, insular area, and Federal governments and NGOs, 

regarding animal response issues.

 Coordinate need assessments for animals, including household pets, and 

animal response needs and provide technical support for evacuation and 

emergency sheltering.

Logistics and 

Supply Chain 

Management

Nutrition Assistance

 Assist states and local organizations in supporting disaster feeding efforts 

with the following:

 Provide USDA Foods to state agencies for distribution to shelter and 

other mass feeding sites.

 Provide USDA Foods to state agencies for distribution directly to 

households in need in certain limited situations.

 Authorize state agencies to issue Disaster Supplemental Nutrition 

Assistance Program (D-SNAP) benefits.

Natural and Cultural Resources and Historic Properties Resources Protection

 Coordinate NCH identification and vulnerability assessments.

 Facilitate development and application of measures and strategies to 

protect, preserve, conserve, rehabilitate, stabilize, and guide the recovery of 

NCH.

 Assist in emergency compliance with relevant Federal environmental laws,

such as emergency permits/consultation for natural resources use or 

consumption, during emergency response activities.

 Manage, monitor, and assist in or conduct response actions to minimize 

damage to natural and cultural resources and historic properties.

 Share best practices and assist in development of programmatic 

approaches to address and expedite NCH-related requirements for all 

Federal actions/initiatives take to respond to an incident requiring a 

coordinated Federal response.

 Provide assistance and expertise in addressing impacts to properties of 

traditional religious and cultural importance.

 Provide up-to-date geospatial data related to impacted NCH and develop 

and provide standard operating procedures for collecting NCH digital data, 

conducting geographic information system analyses, and disseminating 

geospatial products, such as maps, related to NCH.

 Provide technical guidance to preserve, conserve, and stabilize records, 

archives, and collections and utilize existing records management expertise

to assist in the response of local and state records in all formats.

 Animal Response

 Facilitate whole community multiagency coordination with NGOs to 

support movement of animal response resources, supplies and 

equipment. 

Public Health, 

Healthcare, and 

Emergency Medical 

Services

Animal and Agricultural Health

 Respond to animal and agricultural health emergencies under USDA 

statutory authority.

 Coordinate with ESF #8 on management of zoonotic disease.
Response Federal Interagency Operational Plan 

A-23

ESF #11—

Agriculture and 

Natural Resources

Responsibilities

 Coordinate with ESF #8 to ensure that animal/veterinary health issues 

(including both disease management and medical management) are 

supported.

 Collaborate with HHS and the Department of the Interior to deliver effective 

“one health” response that integrates human, animal, and environmental 

health.

ESF #12—Energy Responsibilities

Infrastructure 

Systems

 Assist energy asset owners and operators and local, state, tribal, territorial, 

and insular area authorities with requests for emergency response actions 

as required to meet the Nation’s energy demands.

 Identify supporting resources needed to stabilize and reestablish energy 

systems.

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

communications, emergency operations, and national defense, pursuant to 

the authorities available to the agency providing assistance.

 Through the Department of Energy (DOE), the Energy Sector-Specific 

Agency (SSA) addresses significant disruptions in energy supplies for any 

reason, whether caused by physical disruption of energy transmission and 

distribution systems, unexpected operational failure of such systems, acts 

of terrorism or sabotage, or unusual economic, international, or political 

events.

 In coordination with the DOE, the Energy SSA addresses the impact that 

damage to an energy system in one geographic region may have on energy 

supplies, systems, and components in other regions relying on the same 

system.

 In consultation with energy asset owners, operators, and the DOE, the 

Energy SSA, advises local, state, tribal, territorial, and insular area 

authorities on priorities for energy system reestablishment, assistance, and 

supply during response and operations.

Logistics and 

Supply Chain 

Management

 Provide subject matter expertise to the private sector as requested to assist 

in stabilization and reestablishment efforts.

 Through coordination with DOE (refer to Primary Agency Functions) serves 

as a Federal point of contact with the energy industry for information 

sharing and requests for assistance from private and public-sector owners 

and operators.

Situational 

Assessment

 Work with the FEMA regions, local, state, tribal, territorial, and insular area 

authorities, and the private sector to develop procedures and products that 

improve situational awareness to effectively respond to a disruption of the 

energy sector.

 Coordinate preliminary damage assessments in the energy sector.

 Identify requirements to repair energy systems and monitors repair work.

 Through coordination with DOE, ESF #12:

 Serve as a source for reporting of critical energy infrastructure damage 

and operating status for the energy systems within an impacted area, as 

well as on regional and national energy systems.
Response Federal Interagency Operational Plan 

A-24

ESF #12—Energy Responsibilities

 Assess the energy impacts of the incident and provides analysis of the 

extent and duration of energy shortfalls.

 Analyze and model the potential impacts to the electric power, oil, natural 

gas, and coal infrastructures and determines the effect a disruption has 

on other critical infrastructure.

ESF #13—Public 

Safety and Security

Responsibilities

On-scene Security, 

Protection, and Law 

Enforcement

 Provide general and specialized Federal law enforcement resources to 

support local, state, tribal, territorial, insular area, and Federal law 

enforcement departments and agencies overwhelmed by disasters or acts 

of terrorism. These ESF #13 Federal Law Enforcement Officers (FLEO) can 

perform a wide array of missions as defined through the FEMA mission 

assignment process.

 Protect critical infrastructure during prevention activities or disaster 

response, when requested.

 Protect emergency responders.

 Determine the role, if any, of private sector/NGOs in the overall public 

safety and security response.

 Work with state law enforcement and government officials to determine the 

methodology by which FLEOs may be granted state law enforcement 

authority during ESF #13 responses, if statutory authority exists for such.

 Manage the development of pre-scripted mission assignments to address 

known and anticipated disaster response public safety and security 

shortfalls.

 Give priority to life-safety missions first, followed by missions that address 

security and the protection of infrastructure/property.

 Consider the availability of safety and security resources within the 

requesting Federal department or agency when providing ESF #13 support 

to other Federal ESFs.

ESF #15—External 

Affairs

Responsibilities

Public Information 

and Warning

External Affairs Overarching Objectives

 Provide accurate, coordinated, timely, and actionable information to 

affected audiences during incidents requiring a coordinated Federal 

response.

 Provide communications support and advice to the leaders during an 

incident.

 Conduct strategic communications planning to effectively support specific 

response priorities and address hot issues.

 Oversee media relations.

Congressional Affairs

 Prepare an initial congressional affairs action plan to support the Unified 

Coordination Group (UCG) staff with incident specific guidance and 

objectives.
Response Federal Interagency Operational Plan 

A-25

ESF #15—External 

Affairs

Responsibilities

 Establish contact with congressional offices representing affected areas to 

provide information on the incident.

 Coordinate with congressional affairs staff from all Federal agencies 

involved in the response to ensure consistency and transparency in 

communicating with members of Congress.

 Organize congressional briefings.

 Arrange for incident site visits for members of Congress and their staffs.

 Respond to congressional inquiries.

 Assist in the development of written materials for presentations and making 

congressional notifications.

Intergovernmental Affairs—Response Operations

 Promote Federal interaction and implements information sharing with local, 

state, tribal, territorial, and insular area governments.

 Inform local, state, tribal, territorial, and insular area elected and appointed 

officials on response efforts, and recovery programs.

 Disseminate information with the assistance of state municipal leagues, 

county associations, and tribal governments.

 Promote Federal interaction with tribal governments on all aspects of 

incident response operations.

 Ensure inclusion of tribes in all aspects of incidents requiring a coordinated 

Federal response that affect tribes and incident response operations.

Joint Information Center

 Coordinate messages with local, state, tribal, territorial, insular area, and 

Federal governments from the National JIC.

 Provide incident-related information through the media and other sources in 

accessible formats and multiple languages to individuals, households, 

businesses, and industries directly or indirectly affected by the incident, 

including those with disabilities and others with access and functional 

needs.

 Monitor news coverage to ensure that accurate information is disseminated.

 Disseminate incident information through digital media (official Web sites, 

social networking platforms) to ensure wide delivery of lifesaving 

information.

 Maximize the use of video and digital imagery to communicate during 

incidents.

 Handle appropriate special projects, such as news conferences and press 

operations, for incident area tours by government officials and other 

dignitaries.

 Provide basic services, such as communications and supplies, to assist the 

news media in disseminating information to the public.

 Oversee media relations.

 Types of JICs:

 JIC: Serve as a central point of coordination for incident information, 

public affairs activities, and media access to information regarding the 

latest developments.
Response Federal Interagency Operational Plan 

A-26

ESF #15—External 

Affairs

Responsibilities

 Incident JIC: The physical location where all public affairs professionals 

involved in the response work together to provide critical emergency 

information, media response, and public affairs functions.

 Virtual JIC: Links all participants through technological means (secure or 

non- secure) when geographical restrictions, incident management 

requirements, and other limitations preclude physical attendance by 

public affairs leadership at a central location.

 Satellite JIC: A forward-deployed component of an incident JIC.

 Plans and Products

 Educate the public in the aftermath of an incident requiring a coordinated 

Federal response through news advisories, press releases, prepared 

materials, fliers, and talking points.

 Develop new media products for dissemination, including blog posts, 

messages for social media, update messages, video, and digital imagery.

Private Sector

 Manage two-way information flow with private sector partners. Provide 

information on business recovery services, gather situational awareness on 

private sector impacts, status and issues.

 Conduct outreach and education.

 Promote operational integration with the impacted private sector entity to 

support local economic response and recovery.

 Support shared situational awareness by engaging the private sector in 

information-sharing efforts.
Response Federal Interagency Operational Plan 

B-1 

Annex B: Planning 

Purpose 

The purpose of this annex is to describe the delivery of the Planning core capability within the 

Response mission area. 

The Planning core capability conducts a systematic process, engaging the whole community, as 

appropriate, in the development of executable strategic, operational, and/or community-based 

approaches to meet defined objectives. 

The Planning (P) critical task is as follows: 

 P-Critical Task-1: Develop operational plans at the Federal level and in the states and territories 

that adequately identify critical objectives based on the planning requirements, provide a 

complete and integrated picture of the sequence and scope of the tasks to achieve the objectives, 

and are implementable within the time frame contemplated in the plan using available resources. 

Planning enables operational coordination and facilitates effective decision making. The Planning 

core capability establishes the strategy to achieve the mission or goal, outlines operational and 

support activities to address the situation and risks, and identifies resource requirements prior to and 

following an incident. This annex consists of three appendices: Risk Management, Situational 

Assessment, and Geospatial. As discussed in each of the respective appendices, these provide critical 

aspects to inform the planning process both pre- and post-incident and are organized together to 

further integrate them. 

Situation 

Plans are the operational core of preparedness and provide mechanisms for setting priorities, 

integrating multiple jurisdictions and organizations and functions, establishing collaborative 

relationships, and ensuring that communications and other systems effectively support the full 

spectrum of emergency management and incident response activities. Planning is the process by 

which all members of the whole community organize the delivery of core capabilities in preparation 

for and during all incident management operations to include catastrophic incidents. Operational 

demands during a catastrophic incident will be larger than any one organization, or echelon, can 

manage independently. Significant coordination and understanding of risks, priorities, shared 

resources, and planning fundamentals are necessary to effectively deliver Response core capabilities. 

Pre-incident planning shortfalls include outdated, unaligned, or non-integrated plans at all levels 

impeding the ability of the whole community to respond to a catastrophic incident with associated 

cascading incidents. Planning efforts throughout the whole community must maintain an integrated 

approach through both the vertical (local, state, tribal, territorial, insular area, and Federal) and 

horizontal (various departments and agencies) synchronization of plans. Synchronization of planning 

across the whole community mitigates one of the largest risks to planning. 

Assumptions 

General assumptions for the Response Federal Interagency Operational Plan (FIOP) have been 

identified in the base plan. 
Response Federal Interagency Operational Plan 

B-2 

Mission 

Federal departments and agencies will develop response plans for coordinated Federal support to 

local, state, tribal, territorial, and insular area governments, as necessary. These plans identify critical 

objectives and provide an integrated picture of the sequence and scope of the tasks required to 

achieve objectives and deliver the core capabilities in a timely manner. 

Execution 

Concept of Operations 

Planning is a collaborative process used to facilitate the delivery of core capabilities across all 

mission areas and all levels of government. The planning process includes the gathering and 

assessment of information; determination of risks that would impact the effective delivery of tasks; 

identification of strategies to manage those risks and close gaps; and the evaluation and maintenance 

of the plan. 

Deliberate plans are developed at all levels vertically from the local level to the Federal level and all 

levels horizontally through departments and agencies having responsibility for supporting the 

delivery of core capabilities for a response to any incident. Deliberate planning is accomplished 

under non-emergency conditions, developing general procedures for responding to, recovering from, 

and mitigating against future threats, hazards, or scenarios. Examples of deliberate planning include, 

but are not limited to: All-hazard Response Plans; Incident-specific Plans; Federal Interagency 

Operational Plans; Regional Interagency Operational Plans, and Department and Agency Operational 

Plans (OPLAN). Once an incident occurs, deliberate plans are adapted or adjusted to the 

circumstances of the incident to enable response actions to take place in a coordinated manner. These 

plans are aligned and integrated both pre- and post-incident, identifying interdependencies, 

synchronizing interactions, and coordinating critical points amongst vertical and horizontal partners. 

Figure B-1 illustrates the horizontal and vertical linkages of planning seen in the National 

Preparedness Goal. It is also important to note that continuity plans and procedures are important for 

ensuring an organization can continue to perform essential functions. It is important to note that 

continuity planning and operations are critical to the continuation of the essential services and 

functions that the whole community relies upon as it responds to disasters. 
Response Federal Interagency Operational Plan 

B-3 

Figure B-1: Planning Integration 

To foster unity of effort for the delivery of the Response core capabilities, integration of planning 

will occur (if any one or more of the following apply) when an organization: 

 Is supported by or supports another organization 

 Is affected by or affects the command, control, or communication with another organization 

 Provides resources to or uses resources from another organization 

 Shares authorities with another organization or has authorities that may overlap, conflict with, or 

complement the authorities or responsibilities of another organization 

 Relies on another organization for information or must provide information to another 

organization. 

If planning integration is required, vertical and horizontal integration will be comprised of three 

factors: risk; command, control, and communications; and resource-sharing. Core capabilities within 

one mission area may be linked to the core capabilities within other mission areas through these 

integrating factors. Across the five mission areas, risk is integrated through the outcomes identified 

in the Strategic National Risk Assessment (SNRA), which identifies risks and impacts that would 

have the greatest effect on the security and stability of our Nation. As structures and coordination 

mechanisms vary based on incidents and authorities, a thorough evaluation of the command, control, 

and communications integration factor will be critical for the delivery of the core capabilities. 

Recognizing resource sharing across the whole community and incorporating it into planning will 

strengthen and integrate the plans, ensuring resources are not over-assigned or underutilized. 
Response Federal Interagency Operational Plan 

B-4 

Performance measures are quantifiable and appropriate. They provide a clear set of end state 

expectations and improve both the plans and the planning process. Throughout the Response FIOP, 

interagency performance metrics are identified for each phase of the core capabilities as the end 

states. These end states provide a common baseline for the interagency community to develop their 

own internal corresponding metrics. Departments and agencies should develop their plans in 

alignment with these end states. By basing their planning efforts on these end state performance 

metrics, a closer and more effective integration of the overall planning effort will be achieved. 

This Response FIOP incorporates the identification, assessment, and management of risk in 

Appendix 1 to Annex B. The risk management appendix identifies how risk is connected to resource 

sharing across the mission areas. Information regarding how command, control, and communications 

are integrated is contained in Annex C, Annex D, and Annex E. Resource sharing is integrated 

throughout this FIOP, but is primarily discussed in Annex D. 

Integration of Advances in Science and Technology Capabilities to Enhance Planning 

Science and technology-based capabilities are continually evolving, enhancing the ability of 

emergency managers to reduce the latency in delivery of response core capabilities and enhancing 

the accuracy of decision making in a rapidly evolving and information-limited incident. Planning 

integration of evolving science and technology capabilities across the Emergency Support Functions 

(ESF) requires the engagement of Federal scientific coordination groups with Federal officials in 

charge of developing and maintaining Federal interagency plans and ensuring regional operations 

plans incorporate state-of-the-art scientific understanding and technological capabilities. 

The Response FIOP identifies activities and organizational linkages to ensure a unity of effort to 

deliver Response mission area core capabilities. Federal interagency science and technology 

coordination entities provide a forum to facilitate integration of science and technology 

developments in Response mission area core capabilities. Regular assessment of the research-tooperations pipeline to support response mission area capabilities is necessary. These assessments 

should include identification of science and technology gaps and investments needed to close those 

gaps in order to improve the delivery of response mission area core capabilities. 

Phase 1 

Federal interagency plans are based either on statutory or regulatory authorities, and specific 

contingencies and/or types of incidents. The deliberate planning process outlines the roles, 

responsibilities, authorities, and resources of departments and agencies prior to the occurrence of an 

incident. Deliberate plans describe the concept of operations, objectives, performance measures, 

assumptions, considerations, tasks, and resource requirements to effectively deliver Response core 

capabilities. Identifying and assessing risk drives planning in Phase 1a. Risk varies across the Nation, 

and various systems are used to identify and assess risks. At the local, regional, and state levels, the 

Threat and Hazard Identification and Risk Assessment (THIRA) Guide, found in Comprehensive 

Preparedness Guide 201, provides a step-by-step process for each jurisdiction to identify and assess 

the risks of concern. At the national level, the SNRA analyzes the greatest risks to the Nation. There 

are also specialized risk assessments conducted for specific situations or events such as a National 

Special Security Event (NSSE). THIRAs, the SNRA, and specialized risk assessments, taken 

together, provide an integrated picture of the risks facing our Nation. Risks that are identified within 

the Response mission area are initially coordinated through the SNRA and THIRA as a common 

means for understanding of the risk and to inform resource allocation and planning across the 

mission areas. As plans are developed, other mission areas are included in discussions and planning 

activities to ensure a common understanding, approach, and to coordinate key assumptions and 

activities. 
Response Federal Interagency Operational Plan 

B-5 

Deliberate plans should include whole community input in addressing support to local, state, tribal, 

territorial, and insular area partners in addressing the needs of everyone who may be impacted during 

a disaster—based upon knowledge of the communities’ permanent and transient population, 

including individuals with disabilities, people with limited English proficiency (LEP), people from 

diverse racial and ethnic groups, and others with access and functional needs, taking into account 

children and older adults, and the needs of service and assistance animals and pets. The importance 

of in-depth planning for persons with disabilities and others with access and functional needs cannot 

be overstated. Planning for these individuals often requires that unique and/or non-traditional 

solutions be incorporated, for example, evacuation of non-ambulatory persons may require accessible 

transportation and that must be accounted for in the planning process. 

In addition to the mission area FIOPs, there are several other Federal-level plans that are created as a 

part of the deliberate planning process under the National Planning System: 

 Regional operational plans support the Response FIOP by describing the concept of operations 

for integrating and synchronizing existing national-level Federal capabilities to support the local, 

state, tribal, territorial, and insular area governments within a specific geographic area. 

 Department and agency operational plans describe how the organization will, in response to an 

incident, support the delivery of Response core capabilities. Similarly, all public communications 

and warnings must ensure appropriate auxiliary aids and services necessary to achieve effective 

communication with individuals with disabilities (e.g., interpreters, translators, captioning, 

accessible multimedia and Web sites) and appropriate language services to individuals with LEP, 

such as interpreters and translated materials. 

Federal departments and agencies and ESFs will identify, share, and scope planning objectives and 

accompanying tasks in support of pre-incident and response planning efforts using both traditional 

and atypical methods. Phase 1 (pre-incident) response plans will be integrated and aligned vertically 

and horizontally. Emphasis is placed on engaging whole community partners in plan development, 

training and exercising as a means to strengthen comprehensive emergency planning capacity. ESFs, 

departments, and agencies conduct deliberate planning relative to their own designated 

responsibilities and develop appropriate supporting documents, such as standard operating 

procedures, playbooks, and conduct training and exercises during normal operations. All plans are 

exercised, evaluated, and improved as a continual ongoing process during normal operations. 

Lessons learned from exercises and after action reports (AAR) are incorporated into plans and the 

improved plans are used in subsequent responses. 

Phase 2 

Planning during a response rests on the foundation of deliberate plans that are adapted to fit the 

circumstances of an actual incident. Situational analysis guides the development of Incident Action 

Plans (IAP). Information obtained and incorporated into plans will also include risks that are 

identified through other mission area coordinating structures. Actions determined from the 

development of an IAP are reassessed and revised as subsequent situational awareness, resources, 

and other factors dictate. 

During a Stafford or non-Stafford Act incident, departments and agencies with primary response 

responsibilities perform planning to provide an effective and efficient resolution to the incident. 

During a response to a Stafford Act incident, each department and agency implements its functional 

plans to accomplish assigned activities and the delivery of associated core capabilities. All functional 

plans are scalable and adaptive. Attention to changes in situational assessments will dictate 

adjustments to current IAP activities. Plans are aligned during response operations at multiagency 
Response Federal Interagency Operational Plan 

B-6 

coordination and command structures (e.g., Incident Command Post, Joint Field Office [JFO], 

Federal Department and Agency Emergency Operations Centers [EOC], National Response 

Coordination Center [NRCC]) levels through individual plan dissemination, comparison, and 

analysis (in-person and through coordination calls). 

Acknowledging that recovery starts with the incident, in conjunction with response operations, and in 

anticipation of the eventual complete transition into recovery, planning includes preparation to 

achieve a seamless transition. 

As an integral part of the planning process, problems encountered during the response that relate to 

implementation of the plans used are recorded and employed in both revision to the plans and for 

possible mitigation efforts to reduce future impact of a similar incident. 

Phase 3a 

Following the transition to recovery, reviews of the effectiveness of the response and suggestions for 

future improvements will be derived from “hot washes” and formal assessments of actions taken 

during the response and an AAR will be generated. The AAR will provide assessments needed to 

improve plans, information for improvement of training and data for mitigation efforts. 

Implementation of plans for the transition to recovery will take place at the onset of this phase. 

Lessons learned in the provision of science and technology capabilities will be reflected in an 

interagency assessment or AAR that evaluates the overall performance of science and technology 

assets in supporting the delivery of response mission area core capabilities. Recommendations from 

the post-event science and technology assessment will inform future Federal research and 

development needs and identify future coordination requirements. 

Coordinating Structure 

All ESFs support the delivery of the Planning core capability. Each department or agency conducts 

deliberate planning for their areas of responsibility, integrates those plans with the overall Response 

FIOP, and participates in the delivery of all applicable core capabilities. 

Each department or agency involved in response adapts their plans to the circumstances presented for 

both a Stafford and non-Stafford Act incident. There are several Federal-level (Stafford Act) plans 

that are created as part of the adaptive planning process and are described below. 

When an incident occurs, planning will occur at the incident level, regional level, and national level, 

as appropriate. The types of planning occurring at each level are reflected in Table B-1. 

Table B-1: Types of Adaptive Plans 

Incident Level Planning Regional Planning National Planning

 Incident Action Plan

 Advanced Operational Plan

 Incident Strategic Plan

 Functional Plan

 Regional Support Plan

 Functional Plan

 National Support Plan

 National Advanced 

Operational Plan

 Functional Plan

National Planning 

All Federal departments and agencies undertake planning actions to support national preparedness. 

The Federal Emergency Management Agency (FEMA) works with its national-level partner ESFs 

and Support Agencies to develop risk-specific, coordinated interagency operational plans. Within this 
Response Federal Interagency Operational Plan 

B-7 

construct, each partner agency prepares its own plans for how it will execute its portion of the 

coordinated response mission. ESFs with multiple Primary Agencies designate an ESF coordinator 

for the purposes of pre-incident planning and coordination of Primary and Support Agency efforts 

throughout the incident. 

The NRCC Staff conduct planning to support regional and incident operations. National Planning 

includes the development of the following: 

 A National Support Plan, as needed, assists regional support and incident response efforts. The 

National Support Plan is used to describe the mobilization of Federal resources to support the 

incident from the national-level on a day-to-day basis. 

 A National Advanced Operational Plan (AOP) identifies and quantifies the mobilization of 

Federal resources to support the incident from the national-level on a day-to-day basis. 

 Functional Plans, as required, address particular requirements or emergency program policy 

issues associated with one or more incidents. These plans outline specific national functional or 

programmatic efforts to support the incident. 

Regional Planning 

FEMA regional offices work with their states and regional interagency partners to develop 

coordinated interagency operational plans focused on specific threats and/or risks within the region. 

Within this construct, each partner agency prepares its own plans for how it executes its portion of 

the coordinated response mission. Regional plans typically are operational supplements to national 

plans and provide region-specific procedures and guidance. The goal is to identify, prior to an 

incident, the specific resources and tasks for which each entity is responsible to ensure a smooth 

response effort. 

Planning for an NSSE requires the coordination and cooperation of the U.S. Secret Service (primary 

responsibility for security design, planning, and implementation), the FBI (primary responsibility for 

intelligence, counterterrorism, hostage rescue, tactical response, bomb management, render safe 

operations, and Federal criminal investigations), and FEMA (primary responsibility for emergency 

response and recovery planning and coordination). These agencies cooperatively develop and 

execute NSSE plans and prepare appropriate operational supplements. 

Regional Response Coordination Center (RRCC) staff conducts planning at the regional level to 

provide regional resources and guidance to support incident operations. Regional planning may 

include development of the following: 

 The Regional Support Plan is a forward-looking document identifying the resources and tasks 

taken by RRCC-activated functions to support incident objectives and priorities. Possibly 

covering multiple operational periods, this process focuses on and documents regional support 

efforts. The Regional Support Plan may be used in place of an IAP until the Federal Coordinating 

Officer has taken control. The resulting plan provides information to incident personnel and 

headquarters officials on regional efforts to support the incident. The Regional Support Plan can 

identify resources available and assist in the development of AOPs by identifying gaps in critical 

assets. 

 Functional plans, as required, address particular requirements or emergent program policy issues 

associated with one or more incidents. These plans outline specific national functional or 

programmatic efforts to support the incident. 
Response Federal Interagency Operational Plan 

B-8 

Incident-level Planning 

Comprehensive Preparedness Guide 101 provides for the development of local, state, tribal, 

territorial, and insular area emergency operations plans. Local, state, tribal, territorial, and insular 

area plans provide a framework for understanding vulnerability to and risk of hazards, and 

identifying the pre-disaster and post-disaster mitigation measures to reduce the risk from identified 

hazards. Private sector plans are developed by privately owned companies and corporations. These 

plans are used for response operations at the local, state, tribal, territorial, and insular area level and, 

in some cases, nationally and internationally as well. 

Incident-level planning at the Federal level refers to the level in which Federal incident planning is 

accomplished, in partnership with States and in support of local offices. For Stafford Act incidents, 

the Unified Coordination Group (UCG) develops the incident objectives and is responsible for the 

following planning activities: 

 The IAP is a written document, and contains general objectives reflecting the strategy for 

managing an incident, which may include the identification of operational resources and 

assignments, attachments that provide direction, and important information for incident 

management. The IAP is the focal point for incident-level planning. It builds on local, state, 

tribal, territorial, insular area, and Federal deliberate plans, tailoring to the priorities and 

objectives established by the UCG. The IAP governs evolving operational periods throughout the 

life of the Federal response. 

 The AOP is used to estimate requirements and anticipate activities over multiple operational 

periods, typically three to seven days beyond the current operational period. The AOP is based on 

and supports incident objectives and priorities, and complements incident action planning. It 

includes short-term milestones that facilitate timely ordering to ensure resources are available 

when needed. The AOP provides a mechanism to synchronize planning efforts beyond the 

current operational period, capture procedures derived from deliberate plans, and identify future 

resource requirements that may take longer to provide or that will not be needed until later in the 

response. 

 Incident Strategic Plans are used to estimate requirements and anticipate activities over the life 

cycle of the entire incident. It provides overall direction for incident management and specifies 

milestones to be accomplished over time. It outlines the goals, operational priorities, and desired 

end states that enable the UCG to determine the group’s position within the life cycle of the 

incident and when goals have been achieved. 

 Functional Plans are developed as required to address specific functional and operational issues. 

The plans are not confined to the current operational period, but may address a single operational 

period or multiple operational periods. A functional plan typically includes identification of the 

operational resources required and proposed actions; it may also include timelines and 

milestones. 

ESFs that provide support to the delivery of the Planning core capability are included in the 

following section. 

Planning Tasks 

Mission Objectives (MO) 

 P-MO-1: Use an integrated planning process to develop a coordinated operational plan across 

local, state, tribal, territorial, insular area, and Federal jurisdictions. (Supports P-Critical Task-1) 
Response Federal Interagency Operational Plan 

B-9 

 P-MO-2: Based on the operational plan, identify critical objectives across the mission areas and 

operational phases. (Supports P-Critical Task-1) 

 P-MO-3: Identify required resources to achieve the critical objectives in the most effective and 

cost-effective manner. (Supports P-Critical Task-1) 

 P-MO-4: Identify, sequence, and scope tasks to achieve measurable objective targets. (Supports 

P-Critical Task-1) 

Phase 1a—Normal Operations 

End State: Plans have been exercised and tested across local, state, tribal, territorial, insular area, and 

Federal entities. Private sector and nongovernmental organizations (NGO) have participated in 

exercises, as appropriate. (Supports P-MO-1) 

 Tasks by Phase, by ESF 

 All 

 Conduct whole community response and recovery planning that includes risk reduction 

and mitigation elements. 

 Ensure mitigation and infrastructure protection assessments (e.g., THIRA, SNRA, 

Hazards United States (Hazus), Dam Safety, Hurricane Evacuation, Sea, Lake, and 

Overland Surge from Hurricanes modeling, critical infrastructure vulnerabilities, National 

Infrastructure Simulation and Analysis Center reports, U.S. Geological Survey [USGS] 

soil modeling) are incorporated within the information and analysis phase and reflected in 

the plan’s threat assessment to the degree appropriate to the plan. 

 Develop plans that will incorporate private sector capabilities in support of response 

MOs. 

 Synchronize information with partner departments and agencies. 

 Update pre-deployment checklists and personnel rosters. 

 Review pre-scripted mission assignments (PSMA), existing interagency agreements 

(IAA), contract vehicles, and memoranda of agreement, and understanding available for 

rapid implementation and execution. 

 Facilitate information flow in the pre-incident phase and coordinate intergovernmental 

planning, training, and exercising in order to prepare assets for deployment. 

 Develop, implement, exercise, and maintain plans to ensure continuity of operations. 

 ESF #1 

 Assist in the development of evacuation plans for major metropolitan areas, in 

conjunction with the local jurisdictions. 

 Collaborate with state and Federal partners to develop contingency air mission and 

airspace management plans. 

 ESF #2 

 Develop, review, and distribute Federal disaster emergency communications planning 

information to support agencies. 

 ESF #3 
Response Federal Interagency Operational Plan 

B-10

 Coordinate the planning and execution of evacuations across the navigable waters of the 

United States and major metropolitan areas, including evacuation plans for individuals 

with access and functional needs, such as individuals with disabilities. 

 ESF #4 

 Plan for the mobilization of firefighting resources from all levels of government in 

support of local, state, tribal, territorial, and insular area agencies involved in wildland, 

rural, and urban firefighting operations during incidents under the Stafford Act. 

 ESF #5 

 Assess military installations for suitability to support Federal and Department of Defense 

(DoD) response activities and be prepared to designate both Incident Support Bases (ISB) 

and Base Support Installations. 

 Provide accurate and timely information related to an incident. 

 ESF #6 

 Plan for the provision of resources to meet the requirements of ESF #6 components mass 

care, emergency assistance, temporary housing and human services. 

 Provide technical assistance for the development of local, state, tribal, territorial, insular 

area, and Federal governments, NGO, and private sector operational plans for mass care, 

emergency assistance, temporary housing, and human services. 

 ESF #7 

 Review and prepare additional pre-disaster agreements and contracts to ensure the 

greatest capability to provide sufficient resources to survivors and responders during an 

incident. 

 Develop plan and capacity to provide equipment, supplies, and services required to assist 

children and adults with disabilities and others with access and functional needs to 

maintain their independence. 

 ESF #8 

 Analyze and plan for the provision of health and medical services to provide support to 

survivors including public health, behavioral health, and medical assistance to individuals 

with access and functional needs, such as individuals with disabilities; populations with 

LEP; and racially and ethnically diverse communities. 

 Coordinate the development of Federal fatality management policies, doctrines, and plans 

as it relates to victim identification and behavioral health assistance for the grieving. 

 Provide technical assistance to local, state, tribal, territorial, and insular area entities as 

they develop fatality management plans. 

 ESF #9 

 Plan, develop, and perform search and rescue (SAR) training and exercise programs, 

which will enable the deployment of assets to the field in less than 16 hours. 
Response Federal Interagency Operational Plan 

B-11

 ESF #10 

 Maintain the National Oil and Hazardous Substances Pollution Contingency Plan, a 

regulation that provides an organizational structure and procedures for preparing for and 

responding to actual or potential discharges of oil and releases of hazardous substances, 

pollutants, and contaminants. The Environmental Protection Agency (EPA) maintains the 

plan in consultation with USCG and 13 other Federal agency partners. 

 Develop regional and area contingency plans. 

 Issue regulations through EPA and USCG and provide oversight under Federal laws that 

establish requirements for local government and facility/vessel oil/hazardous materials 

contingency planning. 

 ESF #11 

 Coordinate Federal support for the protection of the Nation’s agricultural, natural and 

cultural resources. 

 ESF #11 may facilitate planning to provide supplemental nutritional assistance; respond 

to animal and agricultural health issues; provide technical expertise; coordinate and 

support animal and agricultural emergency management; ensure the safety and defense of 

the Nation’s supply of meat, poultry, and processed egg products; and ensure the 

protection of natural and cultural resources and historic properties during an actual or 

potential incident. 

 ESF #12 

 Coordinate with private sector energy owners and operators, local, regional, state, tribal, 

territorial, and insular area governments, associations and industry groups; conduct 

energy emergency response and preparedness exercises; engage in mitigation efforts; and 

support development and refinement of energy emergency plans. 

 Conduct preparedness training and complete individual readiness requirements; response 

material levels are monitored and stocked, as appropriate. 

 ESF #13 

 Plan for the use of safety and security personnel from all levels of government in support 

of safety and security efforts relative to the well-being of survivors and responders during 

an incident. 

 ESF #15 

 Coordinate external affairs planning with local, state, tribal, territorial, insular area, and 

Federal governments and public partners to establish outreach plans for the whole 

community, including those from religious and racial and ethnically diverse backgrounds, 

people with LEP, or individuals with access and functional needs, such as individuals 

with disabilities. 

 Identify potential needs and shortfalls, and alternate means of communications with 

possible loss of communications infrastructure. 

Phase 1b—Elevated Threat 

End State: Plans have been updated and revised based on the current situation. Additional 

stakeholders have been incorporated into planning efforts, as appropriate. (Supports P-MO-1) 
Response Federal Interagency Operational Plan 

B-12

The Response FIOP is based upon a no-notice incident. No specific tasks are included in Phases 1b 

or 1c. Tasks that would be conducted for a notice incident are addressed in Phases 1a, 2a, 2b, or 3a, 

as appropriate. Refer to the base plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Plans continue to be updated and revised. Additional stakeholders have been incorporated 

into planning efforts, as appropriate. (Supports P-MO-1) 

The Response FIOP is based upon a no-notice incident. No specific tasks are included in Phases 1b 

or 1c. Tasks that would be conducted for a notice incident are addressed in Phases 1a, 2a, 2b, or 3a, 

as appropriate. Refer to the base plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Existing plans have been reviewed to identify preliminary information requirements and 

coordination structures. (Supports P-MO-1) 

 Tasks by Phase, by ESF 

 ESF #1 

 Coordinate with other ESFs’ adaptive planning efforts to provide access for response 

personnel to allow delivery of critical services to both survivors and response personnel. 

 ESF #2 

 Support planning for governmental emergency responders to provide restoration of 

communications capabilities. 

 Coordinate the activities of private sector entities in the restoration of their 

communications resources to provide accessible communications to both responders and 

survivors. 

 Participate with the private sector in developing IAPs related to the restoration of private 

sector communications assets. 

 ESF #3 

 Develop plans to ensure appropriate personnel, teams, and material are placed in an alert 

status. 

 ESF #5 

 Conduct continuous adaptive planning at the national-level to facilitate a coordinated 

response to the incident. Plans for the delivery of required resources, the next response 

period, and the evacuation of survivors are examples of the type of planning taking place. 

 Conduct planning and analysis to identify and employ national-level resources to support 

response and recovery operations. 

 Conduct national-level operational planning with respective region(s) to coordinate the 

development of unified Federal response plans. 

 Identify impacted areas and begin to establish coordination and planning with other 

Federal departments and agencies at both the national and regional levels. 
Response Federal Interagency Operational Plan 

B-13

 ESF #6 

 Adapt existing mass care, emergency assistance, temporary housing and human services 

plans and develop additional plans to provide ESF #6 services to survivors, including 

individuals with access and functional needs, such as individuals with disabilities, 

populations with LEP, and racially and ethnically diverse communities. 

 Support the evacuation of survivors who exceed the capacity of existing or projected 

shelter spaces, when appropriate. 

 ESF #7 

 Adapt existing plans for logistical support to responders and survivors and promulgate 

IAPs for each operational period. 

 Activate/notify Logistics Management Center, Logistics Management Directorate (LMD) 

Plans Section, and LMD Planning Team, as required. 

 Initiates actions to coordinate funding for resources and transport. 

 ESF #8 

 Review plans for the deployment of medical and other teams and conduct adaptive and 

functional planning to expedite deployment. 

 Assist with provision of health, behavioral health, and medical services for individuals 

with acute medical needs (who may also have disabilities or other access and functional 

needs) to maintain independence. 

 ESF #9 

 Review and implement deployment plans for SAR teams. 

 Initiate incident action planning for on-scene operations. 

 ESF #10 

 Implement plans to initiate deployment of ESF #10 resources. 

 ESF #11 

 Provide supplemental nutrition assistance; respond to animal and agricultural health 

issues; provide technical expertise; coordinate and support animal and agricultural 

emergency management; ensure the safety and defense of the Nation’s supply of meat, 

poultry, and processed egg products; and ensure the protection of natural and cultural 

resources and historic properties. 

 ESF #12 

 Coordinate with private sector energy owners and operators; assist local, state, tribal, 

territorial, insular area, and regional governments to develop and refine their energy 

emergency assurance prioritization and restoration plans. 

 ESF #13 

 Review and implement plans for Federal Law Enforcement Officer deployment. 

 Review and execute plans for provision of proper law enforcement authorities. 

 Execute Field Support Team (FST) activation plans. 
Response Federal Interagency Operational Plan 

B-14

 Coordinate with Federal law enforcement agencies to execute plans to deploy personnel. 

 ESF #15 

 Review plans for the delivery of information to responders and survivors. 

 Develop and implement incident-specific messaging plans. 

 Execute ESF #15 staffing plans, adjusting as needed. 

 Assist in the planning process by providing information about the status of public 

releases. 

 Coordinate planning activities with all entities (local, state, tribal, territorial, insular area, 

and Federal entities) about the status of response activities and advisories to survivors. 

Phase 2b—Deployment 

End State: Existing plans have been modified for the incident using a coordinated adaptive planning 

process. Critical objectives and accompanying tasks have been identified for the Federal response 

effort. (Supports P-MO-2, P-MO-3) 

 Tasks by Phase, by ESF 

 ESF #1 

 Develop and implement, in concert with state and Federal partners, contingency air traffic 

and airspace management measures (e.g., Temporary Flight Restrictions) to support 

critical response aviation operations such as SAR, evacuation, etc.).

 Provide transportation planning assistance to the states for the evacuation of survivors 

including individuals with access and functional needs, such as individuals with 

disabilities. 

 Provide planning assistance to the states for the evacuation of household pets. 

 Identify temporary alternative transportation solutions and associated support systems 

that can be implemented by others when systems or infrastructure are damaged, 

unavailable, or overwhelmed. 

 Support the incorporation of planning across ESFs and the core capabilities for 

transportation needs and resources and integration of assets into response operations. 

 ESF #2 

 Coordinate the restoration of communications for both the public and private sectors to 

allow for better operational coordination of response activities. 

 ESF #3 

 Coordinate all adaptive and functional U.S. Army Corps of Engineers (USACE) plans 

and their execution to dispatch teams and resources, including adjusting plans in place for 

providing additional personnel and material. 

 ESF #4 

 Implement existing interagency plans using the national firefighting mobilization system 

to provide personnel, equipment, and supplies in support of local, state, tribal, territorial, 

and insular area agencies involved in wildland, rural, and urban firefighting operations. 
Response Federal Interagency Operational Plan 

B-15

 ESF #5 

 Coordinate adaptive planning efforts in order to facilitate response actions and the 

delivery of critical resources to the disaster area. 

 Facilitate interagency information sharing and planning activities through geospatial 

information systems necessary to gain a shared situational awareness and understanding 

for decision making. 

 Incorporate weather projections and impacts into planning for response operations and 

public dissemination of information. 

 Provide informational planning data through the Transportation and Movement 

Coordination Group and its partners through various systems, including modeling 

assessments, geospatial products, and infrastructure analysis to provide access for 

response priority objectives. 

 ESF #6 

 Provide technical assistance for the development of local, state, tribal, territorial, insular 

area, and Federal governments, NGOs, and private sector operational plans for mass care, 

emergency assistance, temporary housing, and human services. 

 Develop plans to support local, state, tribal, etc., ESF #6 operations. 

 Assess and quantify projected housing needs, including needs for accessible housing. 

 Develop a preliminary temporary housing plan, including accessible housing. 

 Develop a donations strategy plan. 

 ESF #7 

 Develop and implement plans for the delivery of critical resources to responders and 

survivors. 

 ESF #8 

 Coordinate the Federal support for medical evacuations (e.g., pre-evacuation 

coordination, patient movement, planning for return of patients following the incident) 

with local, state, tribal, territorial, and insular area jurisdictions. 

 Provide health and medical services planning during the initial response; the focus of the 

medical personnel will be on providing acute medical care (e.g., emergency care, field 

triage) for survivors and responders before transitioning to provide general practice care. 

 ESF #9 

 Develop IAPs for each operational period for SAR operations. 

 ESF #10 

 Establish ESF #10 incident command/unified command as ESF #10 resources arrive on 

site and initiate incident action planning to continue efforts to characterize the 

environmental contamination, and, as appropriate/feasible, contain/stabilize releases and 

identify high priorities for environmental protection and cleanup/decontamination. 
Response Federal Interagency Operational Plan 

B-16

 ESF #11 

 In coordination with ESF#6, provide USDA Foods and infant formula and baby food as 

needed as requested. Review state requests to operate a D-SNAP (Once approved by 

USDA Food and Nutrition Service, a D-SNAP is usually implemented in Phase 3a, 

Short-term Recovery.) 

 Implement existing plans and provide adaptive planning to address existing conditions 

through situational assessment and provide functional planning for the delivery of 

animal- and agriculture-specific expertise. 

 Initiate plans to assess conditions for cultural resources, including museums, archives, 

historic structures, and archaeological sites as appropriate. 

 Implement environmental consultations as appropriate. 

 Initiate plans for the protection of natural and cultural resources and historic properties, 

as appropriate. 

 ESF #12 

 Coordinate with private sector energy owners/operators to facilitate energy restoration. 

 ESF #13 

 Coordinate the development of on-scene safety and security plans for each type of facility 

requiring such services, including shelters and critical infrastructure; provide assistance 

for the maintenance of public safety and security. 

 ESF #15 

 Assist the planning process by providing information about the status of public releases. 

 Coordinate planning activities with all entities (local, state, tribal, territorial, insular area, 

and Federal government entities) about the status of response activities and information 

to survivors. 

Phase 2c—Sustained Response 

End State: Final resource planning has been conducted, based on the remaining tasks required to 

meet the critical objectives. Coordination has taken place between response and recovery 

plans/planners. (Supports P-MO-3, P-MO-4) 

 Tasks by Phase, by ESF 

 All 

 Participate in incident action planning, other adaptive planning, functional planning and 

other efforts to support efforts of responders and protect survivors. 

 ESF #6 

 Develop and implement crisis-counseling plan for responders and survivors. 

Phase 3a—Short-term Recovery 

End State: Plans have been developed for transition to long-term recovery and the demobilization of 

Federal response personnel, programs, and resources. (Supports P-MO-1, P-MO-4) 

 Tasks by Phase, by ESF 
Response Federal Interagency Operational Plan 

B-17

 All 

 Participate in the development of planning that will facilitate the transition from response 

activities to intermediate- and long-term recovery activities. 

Administration and Support 

There are several directives, laws, and other doctrine that influence or assign planning responsibility 

or entities, such as the Post Katrina Emergency Management Reform Act, Presidential directives, or 

Federal Continuity Directive-1. 
Response Federal Interagency Operational Plan 

B-18

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Response Federal Interagency Operational Plan 

B.1-1 

Appendix 1 to Annex B: Risk Management

Purpose 

The purpose of the Risk Management appendix is to illustrate factors that have the potential to 

impede the successful delivery of the Response core capabilities and to describe the process for 

managing operational risks. Continuity planning ensures the uninterrupted ability to engage partners; 

respond appropriately with scaled, flexible, and adaptable operational capabilities; specify succession 

to office and delegations of authority to protect the unity of effort and command; and to account for 

the availability of responders regardless of the threat or hazard. 

Risk is an integrating factor to inform response planning and assist in the development of strategies. 

The information gathered during risk assessment and analysis enables a prioritization of preparedness 

efforts and an ability to identify capability requirements across the whole community. Risk 

management supports the development of shared goals and alignment of capabilities and strategies in 

plans to reduce the risk and increase operational effectiveness vertically within the Response core 

capabilities and horizontally across the mission areas. 

Situation 

The Response FIOP leverages findings from the SNRA to build and deliver Response core 

capabilities. The SNRA, developed by the Department of Homeland Security (DHS) identified the 

threats and hazards that pose the greatest risks to the Nation. The assessment affirmed the need for an 

all-hazards, capability based approach to account for responses to all types of incidents and to 

develop the Response core capabilities necessary to achieve the National Preparedness Goal. 

Risk Assessment 

The SNRA identified the risks that would have the greatest impact on the security and stability of our 

Nation, which are illustrated in Table B.1-1. 

Scientific Data and Tools to Enable Place-Based Risk Assessment 

The SNRA provides an objective basis for understanding the greatest threats based upon existing 

data and historical information. Place-based hazard risk assessments rely upon spatially- and 

temporally-relevant data and models, information, and decision support tools that enable an accurate 

risk assessment for a given location and hazard scenario. Federal science and technology investments 

support capabilities such as Earth observations, including both ground- and space-based assets, 

integrated modeling approaches that provide an understanding of evolving natural phenomenon (such 

as climate change impacts on precipitation) and associated multi-sectoral impacts, and risk 

assessment decision support tools that characterize physical, economic, and social outcomes. 

Scientific advances in the understanding of hazard and threat characterization and impact and 

outcome modeling are critical to planning supported by place-based risk assessment. 

The assessment provides a common ground for unity of effort and consistency in how risk is applied 

across the five mission areas to address the greatest threats. To determine if an incident would pose a 

high risk, the SNRA collected data in the following categories: health and safety, economic, social, 

psychological, and environmental. The data was based on a number of assumptions such as the 

number of fatalities, injuries, and/or illnesses; the direct economic loss; the population that would be 

displaced from their homes for more than two days; the psychological impact of the incident on the 

community; and the effects of an incident on the environment. From the data collected and historical 
Response Federal Interagency Operational Plan 

B.1-2 

information, experts estimated the level of frequency for an incident and the probability of an 

incident occurring. They used frequency and probability to simulate the total number of occurrences 

of an incident in a five-year period and normalized each category to a per-year value. 

Table B.1-1: SNRA National Incident Levels

Threat/Hazard 

Group

Threat/Hazard 

Type

SNRA National-level Incident Description

Natural Animal Disease 

Outbreak

An unintentional introduction of the foot-and-mouth disease 

virus into the domestic livestock population in the United 

States.

Earthquake An earthquake occurs within the United States or its 

territories resulting in direct economic losses greater than 

$100 million.

Flood A flood occurs within the United States or its territories 

resulting in direct economic losses greater than $100 

million.

Human Pandemic 

Outbreak

A severe outbreak of pandemic influenza with a 25 percent

gross clinical attack rate spreads across the U.S. populace.

Hurricane A tropical storm or hurricane impacts the United States or 

its territories resulting in direct economic losses of greater 

than $100 million.

Space Weather The sun emits bursts of electromagnetic radiation and 

energetic particles causing utility outages and damage to 

infrastructure.

Tsunami A tsunami with a wave of approximately 50 feet impacts the 

Pacific Coast of the United States.

Volcanic Eruption A volcano in the Pacific Northwest erupts impacting the 

surrounding areas with lava flows and ash and areas east 

with smoke and ash.

Wildfire A wildfire occurs within the United States resulting in direct 

economic losses greater than $100 million.

Technological/ 

Accidental

Biological Food 

Contamination

Accidental conditions where introduction of a biological 

agent (e.g., Salmonella, E. coli, botulinum toxin) into the 

food supply results in 100 hospitalizations or greater and a 

multi-state response.

Chemical Substance 

Spill or Release

Accidental conditions where a release of a large volume of 

a chemical acutely toxic to human beings (a toxic inhalation 

hazard) from a chemical plant, storage facility, or 

transportation mode results in either one or more offsite 

fatalities, or one or more fatalities (either on- or off-site) 

with off-site evacuations/shelter-in-place.

Dam Failure Accidental conditions where dam failure and inundation 

results in one fatality or greater.

Radiological 

Substance Release

Accidental conditions where reactor core damage causes 

release of radiation.
Response Federal Interagency Operational Plan 

B.1-3 

Threat/Hazard 

Group

Threat/Hazard 

Type

SNRA National-level Incident Description

Adversarial/ 

Human-caused

Aircraft as a 

Weapon

A hostile non-state actor(s) crashes a commercial or 

general aviation aircraft into a physical target within the 

United States.

Armed Assault A hostile non-state actor(s) uses assault tactics to conduct 

strikes on vulnerable target(s) within the United States 

resulting in at least one fatality or injury.

Biological Terrorism 

Attack (non-food)

A hostile non-state actor(s) acquires, weaponizes, and 

releases a biological agent against an outdoor, indoor, or 

water target, directed at a concentration of people within 

the United States.

Chemical/Biological 

Food Contamination 

Terrorism Attack

A hostile non-state actor(s) acquires, weaponizes, and 

disperses a biological or chemical agent into food supplies 

within the U.S. supply chain.

Chemical Terrorism 

Attack (non-food)

A hostile non-state actor(s) acquires, weaponizes, and 

releases a chemical agent against an outdoor, indoor, or 

water target, directed at a concentration of people using an 

aerosol, ingestion, or dermal route of exposure.

Cyber Attack against 

Data

A cyber attack that seriously compromises the integrity or 

availability of data (the information contained in a computer 

system) or data processes resulting in economic losses of 

a billion dollars or greater.

Cyber Attack against 

Physical 

Infrastructure

An incident in which a cyber attack is used as a vector to 

achieve effects which are “beyond the computer” (i.e., 

kinetic or other effects) resulting in one fatality or greater or 

economic losses of $100 million or greater.

Explosives 

Terrorism Attack

A hostile non-state actor(s) deploys a man-portable 

improvised explosive device (IED), vehicle-borne IED, or 

waterbourne IED in the United States against a 

concentration of people, and/or structures such as critical 

commercial or government facilities, transportation targets, 

or critical infrastructure sites, etc., resulting in at least one 

fatality or injury.

Nuclear Terrorism 

Attack

A hostile non-state actor(s) acquires an improvised nuclear 

weapon through manufacture from fissile material, 

purchase, or theft and detonates it within a major U.S. 

population center.

Radiological 

Terrorism Attack

A hostile non-state actor(s) acquires radiological materials 

and disperses them through explosive or other means 

(e.g., a radiological dispersal device or creates a radiation 

exposure device).

In addition to the SNRA, the Threat and Hazard Identification and Risk Assessments (THIRA) 

conducted by local, state, tribal, territorial, and insular area jurisdictions, FEMA, and other Federal 

department and agency regional offices provide a common means for understanding the risks that 

communities face and enhances the life-safety, lifesaving, decision-making process. The THIRA 

takes into consideration the threats and hazards that pose the greatest risks to a community, 
Response Federal Interagency Operational Plan 

B.1-4 

regardless of cause, and how each threat or hazard would affect the core capabilities identified in the 

National Preparedness Goal. The THIRA is used to inform planning and other preparedness efforts 

and can be used to complement Hazard Identification and Risks Assessments. 

In addition to the THIRA and the SNRA, a separate statistical effort was developed, which supports 

the categorization of disasters from Level 1 to Level 3, based upon quantifiable data, and aids in the 

prediction of Federal assistance that may be required. Table B.1-2 provides a brief description of 

each incident level. This data model, created by FEMA’s Office of Policy and Program Analysis, in 

collaboration with FEMA’s Response Directorate, uses six key factors to determine incident impact 

and levels: the number of people displaced; square miles affected; number of staff deployed; 

individual and household program awards; number of mitigation projects; and number of Public 

Assistance projects. This analysis includes any incident, nationwide, that has resulted in a 

presidential declaration and provides a means for identifying the frequency and severity of a wide 

range of incidents impacting the United States and its territories based upon historical occurrences. 

Subsequently, the model categorizes resources by kind and type, including size, capacity, capability, 

skill, and other characteristics. This connection between risk and resources ensures the distribution of 

resources across all mission areas, levels of governments, NGOs, private sector partners, and 

communities is more efficient. 

Table B.1-2: Incident Levels 

Level Description

1 An incident of such magnitude that the available assets designed and put in place for the 

response are completely overwhelmed or broken at the local, regional, or national level. Due 

to the severity, size, location, and actual or potential impact on public health, welfare, and 

infrastructure, the response requires an extreme amount of Federal assistance for response 

and recovery efforts for which the capabilities to support do not exist at any level of 

government.

2 A disaster which, due to its severity, size, location, and actual or potential impact on public 

health, welfare, and infrastructure, requires a high amount of direct Federal assistance for 

response and recovery efforts. Disaster requires elevated coordination among local, state, 

tribal, territorial, insular area, and Federal entities due to moderate levels and breadth of 

damage.

3 A disaster which, due to its severity, size, location, and actual or potential impact on public 

health, welfare, and infrastructure, requires a moderate amount of direct Federal assistance. 

Typically, this is primarily a recovery effort with minimal response requirements, and existing 

Federal and regional resources will meet requests.
Response Federal Interagency Operational Plan 

B.1-5 

The following chart, Figure B.1-1, organized by FEMA Region, illustrates the number of incidents that occurred between the years of 1998–

2011. The y-axis provides the type and the number of incidents for each level, each of which is color-coded (e.g., red for Level 2). The xaxis categorizes the type of incident, to include fire, snow/ice, tornado, hurricane, thunderstorm, and other not-applicable incidents. 

Figure B.1-1: Summary of Incidents by Level and FEMA Region—1998–2011 

Figure B.1-2 lists the number of incidents for each month from 1998–2011, organized by FEMA Region. The y-axis represents the number 

of incidents, while the x-axis lists incidents by FEMA Regions and the months of the year. The data table lists the number of incidents for 

each FEMA Region by month. Each FEMA Region is color-coded and corresponds to the color-coded legend on the right of the graph. 
Response Federal Interagency Operational Plan 

B.1-6 

Figure B.1-2: Number of Incidents by Month and FEMA Region—1998–2011 
Response Federal Interagency Operational Plan 

B.1-7 

Figure B.1-3 lists the type of incident (e.g., fire, flood, hurricane, snow/ice, thunderstorms, and 

tornado) as well as the number of incidents for each level. 

Figure B.1-3: Incidents Type and Level—1998–2011 

Mitigation uses risk analysis information and data to inform response and recovery decision making, 

thereby minimizing operational risk and managing short-term objectives through long-term data and 

analysis. Use of these tools increases the preparedness and effectiveness of response teams, which 

play a significant role in reducing risk by preparing for and minimizing the consequences caused by 

incidents. It improves operational response and can integrate mission area strategies. Short-term 

mitigation measures are designed to de-escalate and remediate impacts and reduce the cascading 

effect of incidents. Long-term mitigation often occurs concurrently with response and recovery 

actions and encompasses forensic data collection and post-event analysis as part of response and 

recovery efforts. Effective community mitigation efforts can directly reduce the required scale of 

response operations and, therefore, may also reduce the overall financial cost of deployable lifesafety services. Additionally, long-term vulnerability reduction initiatives and investments can 

reduce response and recovery resource requirements in the wake of a disaster or incident. Reducing 

long-term risk combined with continuity of operations and recovery planning before a disaster, 

increase resiliency and the likelihood that communities and organizations can perform essential 

functions and deliver core capabilities after an event. 

Operational Risk and Risk Management Strategies 

Operational risks associated with the delivery of Response core capabilities are categorized into 

seven primary areas, as demonstrated in Table B.1-3. 
Response Federal Interagency Operational Plan 

B.1-8 

Table B.1-3: Operational Risk Categories 

Operational Risk Category Category Description

Authority/Legal (AL) Pertaining to law; connected with law and its administration.

Command, Control, and 

Communication (C3)

Knowledgeable exercise of authority in establishing and 

accomplishing objectives and goals (including prioritizing) and 

conveying that information.

Process and Implementation (P/I) Procedures executed to accomplish a plan, task, or a method.

Resources (R) Personnel, teams, facilities, equipment, and/or supplies to meet 

survivor and responder needs.

Site Access and Mobility (SAM) Access or transportation of responders to or within the incident 

area.

Situational Awareness (S/A) Perception and availability of the actual or potential incident 

environment critical to decision making.

Social/Public Will (S/PW) Choices that are made by the public contrary to response 

messaging.

The operational risks and impacts for each core capability were assessed and a risk management 

strategy of acceptance, avoidance, transfer, or control was developed. These strategies are identified 

in Table B.1-4. 

Table B.1-4: Core Capability Risk Management Strategy 

Core Capability Operational 

Risk Category

Risk Management Strategy

Situational 

Assessment

C3

P/I R

Review and revision of existing policies, plans, and procedures. 

Utilization of information to inform initial response activities as a 

means to provide an initial shared situational awareness until a 

standard process could be accomplished, which would include 

a more thorough analysis and provide shared situational 

understanding.

Planning P/I S/A Create a national strategy for the integration and 

synchronization of plans. Minimize the shortage of available 

information.

Operational 

Coordination

AL C3

P/I

Determine strategies to clarify decision making, delegation, and 

implementation processes used during an incident.

Public 

Information and 

Warning

AL

P/I R

S/PW

Identify alternative strategies for providing timely and accurate 

alerts and warnings to the public and responders. Proactive 

measures to enhance the willingness of the public to trust or 

accept information for non-traditional distribution methods.

Critical 

Transportation

P/I Develop a mass evacuation plan to emphasize inclusion of 

NGOs who serve individuals with access and functional needs, 

such as individuals with disabilities, populations with LEP, and 

racially and ethnically diverse communities. Federal 

transportation support to state officials for the purposes of 

expediting damage assessments for ground transport 

strategies.
Response Federal Interagency Operational Plan 

B.1-9 

Core Capability Operational 

Risk Category

Risk Management Strategy

Operational 

Communications

R

S/A SAM

Develop and employ a standardized interoperable format for 

data-sharing for all systems in the National Emergency 

Communications Plan. Identification of strategies for the U.S. 

Government to support critical communications providers’ 

response efforts.

Environmental 

Response/Health 

and Safety

R

S/A S/PW

Develop policies and processes to provide ready access to and 

rapid dissemination of national security information.

On-scene 

Security, 

Protection, and 

Law 

Enforcement

AL R Collaborate with local, tribal, and territorial law enforcement 

agencies for the purposes of deputizing individuals from 

various law enforcement professional associations to augment 

critical staffing shortages.

Mass Search 

and Rescue

C3 R SAM Develop a Catastrophic Incident SAR Addendum, which would 

include planning, training, and exercises.

Mass Care C3 R SAM Coordinate with local, state, tribal, territorial, insular area, and 

Federal jurisdictions, as well as, private sector, NGOs, and the 

National Voluntary Organizations Active in Disaster to mitigate 

shortages of equipment, supplies, trained personnel, and 

availability of shelters, including goods and services for 

individuals with disabilities, individuals with LEP, and others 

with access and functional needs, and physically accessible 

facilities.

Coordinate with public, private, and NGOs to prevent 

duplication of efforts in securing much needed resources and 

supplies.

Logistics and 

Supply Chain 

Management

P/I S/PW R Engage and integrate private sector and nongovernmental 

entities into government emergency management processes. 

Identify strategies to expand security support for resources 

during movement, storage, and distribution process.

Public Health, 

Healthcare, and 

Emergency 

Medical Services

R

P/I S/A

Identify strategies to accommodate individuals with medical 

needs, people with disabilities, and others with access and 

functional needs. Develop and use a healthcare provider 

database to identify individuals that can meet specialized 

medical, behavioral health and veterinary capabilities to offset 

shortages in trained personnel.

Infrastructure 

Systems

P/I S/A S/PW 

SAM

Coordinate with local, state, tribal, territorial, and insular area 

governments and with other Federal departments and/or 

agencies to identify and prioritize the restoration of critical 

infrastructure, electronic information and communications 

systems, and services and the information contained therein.

Coordinate with other Federal departments and/or agencies to 

quickly clear debris to gain access and restore critical 

infrastructure.
Response Federal Interagency Operational Plan 

B.1-10

Core Capability Operational 

Risk Category

Risk Management Strategy

Fatality 

Management 

Services

AL R SAM Develop a national framework to provide guidance on the 

recovery, management, and processing of a catastrophic 

number of fatalities. Develop a reunification system to include 

mortuary information and public submissions as a means to 

rapidly facilitate the identification process.

Fire 

Management 

and Suppression

Provide structural, wildland, and specialized firefighting 

capabilities in order to manage and suppress fires of all types, 

kinds, and complexities while protecting the lives, property, and 

environment in the affected area.
Response Federal Interagency Operational Plan 

B.2-1 

Appendix 2 to Annex B: Situational Assessment

Purpose 

The purpose of this appendix is to describe the delivery of the Situational Assessment core 

capability. 

The Situational Assessment core capability provides all decision makers with decision-relevant 

information regarding the nature and extent of the hazard, any cascading effects, and the status of the 

response. 

The Situational Assessment (SA) critical tasks are as follows: 

 SA-Critical Task-1: Deliver information sufficient to inform decision making regarding 

immediate lifesaving and life-sustaining activities, and engage governmental, private, and civic 

sector resources within and outside of the affected area to meet basic human needs and stabilize 

the incident. 

 SA-Critical Task-2: Deliver enhanced information to reinforce ongoing lifesaving and lifesustaining activities, and engage governmental, private, and civic sector resources within and 

outside of the affected area to meet basic human needs, stabilize the incident, and transition to 

recovery. 

This core capability is organized as an appendix to the Planning Annex because it enables planning 

similar to the way the situational unit aligns to the Planning Section in the National Incident 

Management System (NIMS). Situational Assessment collects, processes, and organizes ongoing 

situation information; prepares situation summaries; and develops projections and forecasts of future 

events. It provides context to the resources and operational environment to directly advise program 

planning and provide vital information to inform planning in anticipation of an incident and for postincident planning. 

Situation 

The scope and geographic size of an incident can significantly affect the operational procedures for 

responders on the scene. An impacted area’s geographic composition can potentially limit the ability 

to rapidly process and communicate large quantities of information and provide accurate situational 

awareness to facilitate decision making. A situational assessment can help to mitigate this challenge 

by providing all decision makers with the most current and accurate information possible regarding 

the nature and extent of the hazard, any cascading effects, and the status of the response. A 

situational assessment is necessary to inform decision making regarding immediate lifesaving and 

life-sustaining activities and to engage governmental, private, and nonprofit sector resources within 

and outside of the affected area to meet basic human needs, stabilize the incident, and transition to 

recovery. To further facilitate collaborative planning and assist all echelons in achieving situational 

awareness, a common operational picture (COP) is used as a single identical display of relevant 

information shared by more than one organization. 

Situational awareness is a necessary precursor to developing a situational assessment. A potential 

setback to the establishment of effective situational awareness for responders is the inability to 

sufficiently collect, analyze, and disseminate information and process large amounts of incoming 

data in a timely fashion. Situational awareness requires continuous monitoring of relevant sources of 

information regarding actual and developing incidents to rapidly provide accurate and accessible 
Response Federal Interagency Operational Plan 

B.2-2 

information to decision makers. Depleted capabilities within the impacted area may not only impact 

resource distribution, but also cause delays in information collection and dissemination for situational 

awareness. At times, only limited resources will be available to analyze and disseminate information 

in a timely fashion. Poor information may lead to an inaccurate understanding by senior leaders and 

will affect their situational understanding and decision-making abilities. Maintaining shared 

situational awareness and the COP provides senior leaders with a greater situational understanding to 

assess progress and make informed decisions. 

The collection and dissemination of information in a timely manner is vitally important to gaining 

effective and shared situational awareness; however, this can be challenging to accomplish. Limited 

access to interoperable communications systems (e.g., voice, data) among local, state, tribal, 

territorial, and insular area entities can severely limit information sharing between responders, 

leading to information gaps and coordination challenges. A limited inventory of planning partners’ 

procedures, essential needs, and capabilities can diminish the relevance of the baseline assessment of 

information and needs, which can delay functional planning and inhibit decision making. The lack of 

a formal method to track information and resource requests across individual operation centers can 

produce duplicative or conflicting messaging, resulting in an inaccurate assessment of the situation. 

The lack of a standard reporting system across the whole response community means that reports are 

received in varying formats. Data that is provided requiring specialized infrastructure or is restricted 

to certain users limits its validity and availability. This can delay analysis and may necessitate 

additional requests for information to obtain necessary data. 

Another potential shortfall for responders is the inability to determine information veracity, 

negatively affecting decision-making capabilities and public confidence. The large amount of 

incoming information requires vetting and validation prior to dissemination to the public. Conflicting 

or incorrect information may overwhelm or confuse the public, resulting in low public confidence 

and the spread of misinformation. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. Assumptions 

specific to this core capability include: 

 Local, state, tribal, territorial, insular area, Federal governments, and private sector entities have 

the capacity to receive and disseminate information and status updates. 

 Situational awareness will be challenging in the early hours of an incident, particularly a highmagnitude incident. 

Mission 

Federal interagency partners will deliver information sufficient to inform decision making regarding 

immediate and ongoing lifesaving and life-sustaining activities and engage governmental, private, 

and public sector resources within and outside of the affected area to meet basic human needs and 

stabilize the incident. 
Response Federal Interagency Operational Plan 

B.2-3 

Execution 

Concept of Operations 

Phase 1 

As the ESF #5 coordinating agency, FEMA works with local, state, tribal, territorial, insular area, and 

Federal entities, NGOs, and the private sector to develop and update interagency operational plans. 

Each Federal department or agency maintains standardized Information Collection Plans (ICP) or 

processes through their respective operations centers, or as mandated by existing policies. Many 

departments and agencies maintain watch operations to monitor incoming information in order to 

maintain situational awareness of threats or developments that may be related to their mission and 

that require potential Federal response support. FEMA improves standardized processes and 

templates for information submission to enhance delivery of Federal resources to local, state, tribal, 

territorial, and insular area entities during an emergency or disaster and reduce redundant information 

requests. DHS continues to update information-sharing tools such as the Homeland Security 

Information Network (HSIN) Web portal to increase compatibility with local, state, tribal, territorial, 

and insular area entities, NGOs, and private sector reporting mechanisms. Many members of the 

private sector and NGOs with a role in response participate in planning efforts. Threat and hazard 

risk analyses are developed in coordination with the public and private sectors to inform response 

and recovery decision making. 

Phase 2 

When incidents impede the ability to communicate effectively or develop impact assessments, risk 

analysis and hazard modeling can provide operational assumptions for first responders to help them 

understand more about the situation and be better prepared to respond. At the beginning of Phase 2, 

there are organizations/procedures that facilitate horizontal coordination of critical information from 

Federal departments and agencies (such as the National Biosurveillance Integration Center and 

others). Inclusion of the other mission areas in the evaluation of information and the development of 

a situational assessment enhances the ability of response to provide the most complete assessment 

and provide for an accurate COP; however, this does not impact the normal reporting methods to or 

across mission areas. ESF #5 collects, analyzes, processes, and disseminates information to facilitate 

planning and decision making at the field, regional, and headquarters levels. The current situation, in 

addition to any threat information, will be collected, analyzed, and processed to inform Response 

activities as well as Prevention, Protection, Mitigation, and Recovery activities, as appropriate. 

Situational information is gathered from sources closest to the incident (e.g., first responders, NGOs, 

and local government officials). It is analyzed and assessed by technical specialists, transformed into 

products to support decision making, and submitted and disseminated to the appropriate operational 

element(s). At the state EOC, reports are analyzed and disseminated to the appropriate operational 

element(s). The FEMA State Liaison directs information to the RRCC, which determines the extent 

and capability of the affected states to manage the incident, and to the NRCC, which provides shared 

situational awareness, modeling, and risk analysis information during crises; identifies information 

requirements; and establishes reporting thresholds to meet expectations of decision makers and 

partners. ESF #5 serves as the centralized conduit for Federal situation reports to the National 

Operations Center (NOC) from the various ESFs and provides an informational link between the 

NRCC, Federal department and agency operations centers, and other NOC components. 

At the Federal level, information is collected and disseminated through various reports generated by: 

Federal departments and agencies; local, state, tribal, territorial, and insular area governments; the 
Response Federal Interagency Operational Plan 

B.2-4 

private sector; and NGOs. The NOC Watch, NRCC, RRCC, and JFO generate a number of 

information requirements, known as essential elements of information, to facilitate information 

collection throughout an incident. Essential elements of information support the critical information 

requirements by providing more detail for situational awareness and decision making. Elements that 

coordinate or provide situational assessment information for specific incidents, such as the role of the 

National Cybersecurity and Communications Integration Center for cyber threats and incidents, will 

be detailed in the appropriate incident-specific annexes. 

Essential elements of information, outlined in situational reports, are elements that must be verified 

and include explicit details (who, what, where, when, and how) related to the incident. Status reports, 

which may be contained in Situation Reports, relay specific information about resource needs and 

availability. Based on an analysis of the incident’s impacts, local, state, tribal, territorial, and insular 

area governments, in coordination with Federal departments and agencies, provide emergency 

information to the public. Table B.2-1 identifies the essential elements of information required to 

effectively and efficiently meet each ESF’s targets and objectives.

Table B.2-1: Essential Elements of Information by ESF 

ESF Essential Elements of Information

ESF #1—

Transportation

 Status of all transportation systems (air, sea, land, rail). In particular, port 

closures, airport closures and major delays, and impacts to railroad systems 

and public transit should be communicated.

 Status of major/primary roads.

 Status of critical and non-critical bridges, including bridge closures.

 Status of evacuation routes. In particular, the following should be 

communicated:

 Activation and suspension of contra-flow operations

 Road closures impacting evacuation traffic

 Emergencies impacting evacuation traffic

 Major evacuation traffic disruptions.

 Accessible transportation with power lifts and ramps and physical accessibility 

at embarkation and debarkation points, stations and depots.

 Limiting factors or shortfalls.
Response Federal Interagency Operational Plan 

B.2-5 

ESF Essential Elements of Information

ESF #2—

Communications

 Status and content of a communications snapshot assessment.

 The anticipated communications impact (on landlines and cellphones) based on 

current models. In particular:

 Number of customers without service.

 Identification of communities without communications capabilities.

 Identification of critical facilities without communications capabilities.

 Potential requirements for satellite and radio equipment.

 Status of Public Safety Answering Points (911 Dispatch), including which, if any, 

are inactive.

 Status of the availability of communication resources. In particular, the number 

of available Cell on Wheels.

 Number of Public Safety Answering Points in the affected area.

 Number and location of Mobile Emergency Operations Vehicles.

 Number and location of available Radio Amateur Civil Emergency Service 

groups.

 Number of Land Mobile Radio networks established.

 Limiting factors or shortfalls.

ESF #3—Public 

Works and 

Engineering

 Status and location of Public Works Planning and Response Teams (PRT).

 Status of river gauge and levees.

 Status of debris removal; in particular, estimated total and percentage complete 

by county.

 Status of public water supply, including potential issues with respect to the 

restoration of non-operational systems and status of public wastewater systems.

 Status of blue roof (fiber-reinforced sheeting) PRT. In particular, the following 

should be communicated:

 Number of open right of entry collections sites

 Was right of entry received to install blue roofs

 Total number of blue roofs currently installed

 Expected rate of blue roof installations per day.

 Status of 249th Battalion Power PRT. In particular, the following should be 

communicated:

 Number of pre-installation inspections received

 Number of installations completed

 Number of de-installs completed.

 Status of critical public facilities, including the number of completed 

assessments.

 Status and location of the Local Government Liaison.

 Status of mission assignment for ESF #3 Lead.

 Limiting factors or shortfalls.

 Number and names of public water services facilities that are operational, nonoperational, and out of contact.

 Number and names of waste water treatment plants that are operational, nonoperational, and out of contact.
Response Federal Interagency Operational Plan 

B.2-6 

ESF Essential Elements of Information

ESF #4—

Firefighting

 Number of ESF #4 staff deployed to the RRCC, EOC, JFO, and field.

 Current or expected mission assignments.

 Number, location, and role of pre-positioned ESF #4 resources.

 Number, location, and role of deployed ESF #4 resources.

 Limiting factors or shortfalls.

ESF #5—

Information and 

Planning

 Mission Assignments/Action Request Forms.

 Status of evacuee operations by bus, air, and rail.

 Situational awareness.

 Division Coordinator Reports/Security, Water, Energy, Academia, and 

Telephone Reports.

 ESFs activated or on alert.

 Limiting factors or shortfalls.

 Status of animal populations/facilities.

 Animal impacts and risks to responders and the public.

 Status of animal response organizations and unmet animal needs.

 Preliminary Damage Assessment information and local impact assessment is 

provided by American Red Cross and other NGOs responding locally.

ESF #6—Mass 

Care, Emergency 

Assistance, 

Temporary 

Housing, and 

Human Services

 Status of human and household pet shelters, people with disabilities and others 

with access and functional needs and people with different levels of LEP.

 Status of distribution of emergency supplies and reunification services. 

 Status of feeding operations, including location, number of fixed sites and 

mobile units and the number of meals prepared and served on a daily basis.

 Potential requirements for sheltering, feeding, distribution of emergency 

supplies, reunification, access and functional needs support, household pets 

and service and assistance animals and evacuee support when these activities 

are occurring. 

 Names of voluntary agencies assisting and their shortfalls/resources needed.

 Status and impact of unsolicited donations and messaging to address the 

problems.

 Percent of rental resources available.

 Number and status of Individual Assistance Preparedness actions.

 Number of Preliminary Damage Assessment teams on alert and deployed, the 

number of areas scheduled for assessment, and the number of assessments 

completed.

 Situational Awareness information reported by teams, including: geographic 

areas sustaining damage; qualitative descriptions of types of damage; and any 

reported social (e.g., looting), economic, and political impacts (e.g., tribal).

 Limiting factors or shortfalls.

 Availability of resources to ensure the functional needs of individuals with 

disabilities, individuals with LEP, and others with access and functional needs.
Response Federal Interagency Operational Plan 

B.2-7 

ESF Essential Elements of Information

ESF #7—

Logistics

 Location of ISBs.

 Location of Initial Operating Facility/Area Field Office (AFO)/Proposed 

AFOs/Disaster Recovery Centers.

 Identification of property leasing issues, if any, by General Services 

Administration (GSA) leasing specialists.

 Expected date of JFO/AFO opening.

 Status of Responder Support Base leasing.

 Identification of damages to Federal facilities and buildings.

 Identification of critical resource needs.

 Limiting factors or shortfalls.

ESF #8—Public 

Health and 

Medical Services

 Number of total medical facilities in the impact zone.

 Name and location of medical facilities operating on generator power.

 Name and location of medical facilities evacuated.

 Number and location of medical needs shelters operating.

 Name and location of closed medical facilities (unable to provide services).

 Location of medical evacuation airports.

 Number of medical evacuations.

 Location of ESF #8 resources (personnel/teams and equipment).

 Location of Department of Health and Human Services (HHS) Incident 

Response Coordination Teams.

 Location of Federal Medical Stations.

 Number of ESF #8 patient encounters.

 Number of State reported fatalities.

 Location of temporary morgue facilities

 Limiting factors or shortfalls.

ESF #9—Search 

and Rescue

 Type, assignment, resources, and status of Federal SAR resources.

 Status of SAR missions, including number of rescues, number of areas 

completed, and number of current counties or areas of operations.

 Limiting factors or shortfalls.

ESF #10—Oil 

and Hazardous 

Materials 

Response

 Type and status of ESF #10 resource deployments.

 Status of significant oil or hazardous material releases.

 Number of oil and hazardous materials leaks, spills, or releases or threatened 

releases from facilities, vessels, pipelines, rail, and any other sources.

 Extent of oil and hazardous materials facilities (includes offshore facilities) or 

mobile facilities damaged, destroyed, or without power.

 Nature and extent of actual or potential environmental contamination and its 

environmental contamination and impacts, as appropriate.

 Limiting factors or shortfalls.
Response Federal Interagency Operational Plan 

B.2-8 

ESF Essential Elements of Information

ESF #11—

Agriculture and 

Natural 

Resources

 Status of distribution of U.S. Department of Agriculture (USDA) Foods for 

congregate and/or household feeding.

 Status of delivery of USDA Disaster Supplemental Nutrition Assistance 

Program.

 Status of procurement and delivery of infant formula and baby food to 

supplement FEMA’s infant/toddler kits

 Status of response operations by USDA Food Safety and Inspection Service.

 Status of Department of the Interior natural and cultural resources and historic 

properties response and/or preparation efforts to assist states and/or FEMA.

 Status of other ESF #11 operations in support of FEMA/state response efforts.

 Limiting factors or shortfalls.

ESF #12—

Energy

 Status of repair crews; number, type, location.

 Current status of electrical power, including number and location of customers 

without power.

 Timetable for power restoration.

 Limiting factors or shortfalls.

 Provide infrastructure status, as applicable, to include refineries offline, impacts 

to pumping stations, natural gas and petroleum pipelines, platform status and 

evacuations, shut in production numbers, and potential impacts to coal 

transport.

ESF #13—Public 

Safety and 

Security

 Number of officers, deputies, agents, or others assigned to public safety and 

security duties.

 Identification of agencies actively engaged and number of active personnel from 

each.

 Status of shelter security provided.

 Status of responder support Base Camp Security, if provided.

 Limiting factors or shortfalls.

ESF #15—

External Affairs

 Media monitoring reports and situational awareness. 

 Advance notice and updates on relevant congressional hearings and actions.

 Updates from Disaster Survivor Assistance Teams (DSAT) teams, including the 

status of teams, the areas of deployment, and a summary of field reports, 

including common needs and observations.

 Limiting factors or shortfalls.

 Status of communications infrastructure in impacted areas

The NRCC develops and provides situation reports during response operations to provide guidance to 

all response partners, including incident objectives and priorities; information on operational 

planning, requirements, and deployment; status and location of resources; and identification of 

priority action areas for response activities. The NRCC may also convene conference calls or 

video/teleconferences with one or more of the RRCCs as necessary to gain and maintain shared 

situational awareness on rapidly developing incidents. 

ESF #5 is responsible for coordinating the use of remote sensing and reconnaissance operations, 

activation and deployment of assessment personnel or teams, and geospatial and geographic 

information systems (GIS) support needed for response. GIS information strengthens situational 

awareness of an incident by reconciling unverified information with geospatial and geographical 
Response Federal Interagency Operational Plan 

B.2-9 

information. During the early hours of a response and in the absence of verifiable information such as 

actual on-site surveys or imagery, GIS, computerized predictive modeling, and damage estimation 

software may be used to develop initial estimates of damage. Situational reports will include analyses 

from a variety of sources, including weather information and forecasts, computerized models, GIS 

data mapping, remote sensing sources, and ground surveys to provide a clear shared situational 

awareness and understanding for response and recovery decision making (see Appendix 3 to Annex 

B for more information). 

A common tool for facilitating situational information exchange is HSIN, which provides secure, 

real-time information sharing and collaboration tools, including a virtual meeting space, instant 

messaging, and document sharing. HSIN also enables all states and major urban areas to collect and 

disseminate information among communities of interest (e.g., emergency management, Federal 

operations, critical sectors [infrastructure]) during emergency operations to help them communicate, 

collaborate, and coordinate, regardless of location. 

Phase 3a 

As the state assumes greater responsibility for the recovery operation, ESF #5 coordinates the 

demobilization of Federal response resources. Each section of the JFO continues to execute its 

responsibility until the Federal presence is no longer required by the state and the operation is 

terminated. Situation reporting and formal briefings should continue through the transition to the 

recovery phase, although the frequency of both should be gradually reduced. 

Coordinating Structure 

Many ESFs support the Situational Assessment core capability. The ESFs that perform tasks under 

this core capability are summarized in Figure B.2-1. Specific tasks conducted by these ESFs are 

identified in the Tasks by Phase, by ESF section below. 
Response Federal Interagency Operational Plan 

B.2-10

Figure B.2-1: Coordination of ESF Support to Situational Assessment 

ESF #5 provides the primary support to the delivery of this core capability, when activated. The 

Primary Agency overseeing situational assessment operations is FEMA. 

Federal departments and agencies serving as Support Agencies to this core capability provide expert 

personnel to the multiagency coordination centers, as requested, to assist with the delivery of Federal 

resources and facilitate information exchange. All agencies, as appropriate, identify staff liaisons or 

points of contact to provide technical and subject matter expertise, data, advice, and staff support for 

operations that fall within the domain of each agency. Support capabilities of other organizations 

may be used as required and available. 

Federal departments and agencies responsible for delivering science and technology capabilities, 

including aerial surveys and remotely sensed imagery and data, Earth observation-based data, 

products, and services (e.g., satellite retrievals, LIDAR topography), meteorological forecasting, 

hazardous materials and toxicological surveys, and other scientific products and services should 

continuously ensure situational assessment support activities incorporate with best-available 

scientific and technological products. Data, imagery, and modeling output from these scientific 

capabilities should be well integrated with existing ESF core capability delivery. Coordination of 

advances in science and technology support agency services will be facilitated through Federal 

interagency entities, such as through coordinated efforts of the Emergency Support Function Leaders 

Group (ESFLG) and the National Science and Technology Council Subcommittee on Disaster 

Reduction. 

The NOC is the principal operations center for DHS and provides situational awareness in the event 

of a natural disaster, act of terrorism, or other disaster. The NOC consists of five elements: the NOC 

Watch; NRCC; National Infrastructure Coordinating Center (NICC); Intelligence Watch and 
Response Federal Interagency Operational Plan 

B.2-11

Warning; and a planning element. The NICC and NRCC are the two operational components; they 

provide integrated mission support during response operations. 

If the incident exceeds a state’s capabilities to respond and recover, the RRCC serves as a fully 

functioning, multiagency coordination center that is staffed with the support of the ESFs until a JFO 

is stood up. The RRCC enables the successful coordination and delivery of Federal resources and 

geospatial information as they are deployed towards the affected area. The RRCC staff reviews and 

adjudicates competing resource requirements. 

ESFs that provide support to the delivery of the Situational Assessment core capability are included 

in the following section. 

Situational Assessment Tasks 

Mission Objectives 

 SA-MO-1: Coordinate existing planning and operational analysis processes across public, 

private, and nongovernmental sectors to facilitate the timely analysis of situational information. 

(Supports SA-Critical Task-1) 

 SA-MO-2: Collect, distill, and analyze incoming information from all available sources within 

and outside of the affected area. (Supports SA-Critical Task-1, SA-Critical Task-2) 

 SA-MO-3: Develop, validate, and make available decision-relevant information to facilitate 

situational understanding across public, private, and nongovernmental sectors. (Supports SACritical Task- 1, SA-Critical Task-2) 

 SA-MO-4: Enhance preliminary situational assessments with more comprehensive information 

collection, validation, and analysis processes to inform decision making. (Supports SA-Critical 

Task-2) 

Phase 1a—Normal Operations 

End State: Information collection, analysis, and dissemination systems have been developed in 

accordance with existing plans. (Supports SA-MO-1) 

 Tasks by Phase, by ESF 

 All 

 Develop and review PSMAs, memoranda of understanding, and IAAs with Federal 

departments and agencies to provide supplemental personnel and resources. 

 Conduct activities consistent with normal day-to-day operations. 

 Use Federal and regional resources to obtain current situational awareness information. 

 Maintain coordination with other Federal departments and agencies at both the national 

and regional levels. 

 ESF #5 

 Provide mechanisms for vertical and horizontal coordination, communications, and 

information-sharing on a standardized platform accessible to all partners. 

 Collect, analyze, and disseminate pertinent information to anticipate requirements to 

ensure a prompt response. 
Response Federal Interagency Operational Plan

B.2-12

 Conduct situational assessments to inform national-level operational planning and to help 

states to develop unified Federal-state response plans.

 Maintain 24-hour, seven days a week national situational awareness of potential, 

developing, or ongoing situations requiring a coordinated Federal response.

 ESF #12

 Work with the FEMA Regions, the private sector, and local, state, tribal, territorial, and 

insular area authorities to develop procedures and products that improve shared 

situational awareness to effectively respond to a disruption of the energy sector.

 Analyze and model the potential impacts to the electric power, oil, natural gas, and coal 

infrastructures, and determine the effect a disruption has on other critical infrastructure.

Phase 1b—Elevated Threat

End State: Existing information collection, analysis, and dissemination systems have been tested and 

updated accordingly. (Supports SA-MO-1)

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations.

Phase 1c—Credible Threat

End State: Information collection, analysis, and dissemination systems have been coordinated across 

public, private, and nongovernmental sectors, as appropriate. (SA-MO-1)

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations.

Phase 2a—Immediate Response

End State: Preliminary information about the incident has been collected from all available sources. 

An initial situational assessment of the incident has been performed to determine the scope of Federal 

support. (Supports SA-MO-2, SA-MO-3)

 Tasks by Phase, by ESF

 All

 Inventory and report to the NRCC the availability and functionality status of all plans, 

supporting teams, and resources. Identify any deficiencies or limiting factors in planned 

capability.

 ESF #2

 Provide communications situational awareness and inputs to the DHS COP.

 ESF #3

 Leverage the use of geospatial data sets for the identification and protection of critical 

infrastructure.
Response Federal Interagency Operational Plan

B.2-13

 ESF #5

 Use situational assessments to guide the provision of alternate communication methods 

(e.g., amateur radios), when necessary.

 Activate ESF #5 personnel and teams and increase staffing and the operational tempo at 

the NRCC and RRCC(s). Actions include alert, notification, and situation reporting in 

coordination with the NOC Watch.

 Issue additional activation mission assignments and establish reporting and 

communications protocols with the activated agencies to conduct situational assessment.

 Provide situation reports and other information to the NOC, in accordance with NOC 

standard operating procedures and protocols.

 Coordinate and request geospatial and GIS support needed for incident management.

 Determine which ESFs are activated, the size and composition of the organizational 

structure, the level of staffing at the above facilities, and the key personnel required for 

the response.

 Identify and resolve resource allocation issues identified at the multiagency coordination 

centers through DHS and FEMA.

 Conduct situational assessments by gathering information from all levels of the response 

and providing an informational link between the NRCC, other Federal department and 

agency operations centers, and other NOC components.

 Make initial contact with the affected state(s) and use situational assessments to identify 

capabilities and shortfalls as a means of determining initial response requirements for 

Federal support.

 Identify staff liaisons or points of contact to provide situational assessment information 

from deployed resources and additional technical and subject matter expertise, data, 

advice, and staff support for operations that fall within the domain of each agency.

 Coordinate overall staffing of Federal emergency management activities at multiagency 

coordination centers.

 Coordinate with mitigation and infrastructure protection elements and leverage normal 

operations modeling and assessments to identify vulnerabilities to key infrastructure and 

responding capabilities.

 Initiate establishment of a Joint Information Center at the incident site.

 Activate and initiate deployment actions for field survey support team and remote sensing 

aircraft to the incident area.

 Alert the Headquarters Joint Task Force and designated Initial Response Forces. Be 

prepared to deploy National Situation Assessment Team(s) to provide rapid mission 

assessment in coordination with Federal authorities. Identify key Initial Response Forces 

capabilities as required.

 Coordinate and issue requests through the Planning Section staff to organize geospatial 

data.

 Prepare situational reports for leadership detailing the impacts and the potential course of 

action necessary to mitigate any shortfalls or gaps.
Response Federal Interagency Operational Plan

B.2-14

 Coordinate with the NRCC and the Mapping and Analysis Center (MAC) to anticipate 

geospatial issues, available resources and requirements, and data collection activities.

 Coordinate with NRCC, RRCC, JFO, states, and regions regarding critical program 

policy issues in the impacted areas to assist with response activities.

 Provide Hazus analysis to the NRCC, RRCC, and JFO upon request.

 Collect data and perform analysis regarding disaster impacts.

 Determine prioritization of repairs with affected local, state, tribal, territorial, and insular 

area entities.

 Assess the status of national and regional Incident Management Assistance Teams 

(IMAT).

 ESF #7

 Coordinate the preparation of a logistics resources map for senior-level briefings.

 Provide a situation update to the Assistant Administrator from the Logistics Management 

Center.

 ESF #8

 Leverage the use of GIS assets (e.g., GeoHealth, which identifies healthcare facilities, 

emergency medical service facilities) that are located within the incident area and can be 

used to support response operations.

 ESF #12

 Coordinate preliminary damage assessments in the energy sector.

 Identify requirements to repair energy systems and monitor repair work.

 Report critical energy infrastructure damage and operating status for the energy systems 

within an impacted area, as well as on regional and national energy systems.

 Assess the energy impacts of the incident, and provide analysis of the extent and duration 

of energy shortfalls.

 Initiate plans for environmental radiation monitoring in the event of a radiological 

release.

 ESF 15:

 Conduct media monitoring and analysis and social media listening reports on initial 

impacts, issues and trends.

Phase 2b—Deployment

End State: Expanding information about the incident has been collected and validated. Situational 

assessments have been refined to inform command and control structures of the operational 

environment. (Supports SA-MO-2, SA-MO-3, SA-MO-4)

 Tasks by Phase, by ESF

 ESF #5

 Conduct resource and requirement tracking to determine if there are additional 

information requirements or resource shortfalls.
Response Federal Interagency Operational Plan

B.2-15

 Transition reporting requirements and lead responsibility for coordination with local, 

state, tribal, territorial, and insular area jurisdictions from the RRCC to JFO.

 Share information and intelligence among local, state, tribal, territorial, insular area, and 

Federal governments and NGOs to support incident response.

 Conduct situational assessments by gathering information from all levels of the response 

and update the common operating picture accordingly.

 Graphically depict sheltering system to include number of occupants compared to the 

maximum number of occupants.

 Coordinate with the RRCC to maintain situational awareness on the resourcing and 

delivery of required resources.

 Compile and analyze reports from deployed resources from all core capability functions 

to build shared situational awareness for distribution to all response partners.

 Assist the Regions in identifying and deploying field teams, Incident Management 

Workforce personnel, resources, and equipment and technology to capture impact data 

for post-disaster analysis (e.g., high water marks, wind/water line).

Phase 2c—Sustained Response

End State: As the information flow is standardized, data has been further refined, distilled, and 

validated, providing decision makers with more comprehensive information necessary to facilitate 

operational coordination. (Supports SA-MO-3, SA-MO-4)

 Tasks by Phase, by ESF

 ESF #5

 Geospatially tag incident reports and identify blocked evacuation routes.

 Maintain shared situational awareness to determine the appropriate time to demobilize 

Federal resources.

 Identify and communicate mitigation opportunities during the response that may speed 

stabilization and restoration efforts, as well as eliminate or reduce potential future risks.

 ESF #8

 Update estimates/actual reporting of number of patients.

 Verify the need for additional monitoring equipment at medical treatment facilities and 

shelters and ensure necessary logistics actions are initiated.

Phase 3a—Short-term Recovery

End State: Data has been further refined, distilled, and validated, providing decision makers with the 

information necessary to inform demobilization decisions and transition to recovery. Situational 

reports on the functionality of critical infrastructure and essential government and commercial 

services have been disseminated to support the reintegration of survivors. (Support SA-MO-4)

 Tasks by Phase, by ESF

 ESF #5

 Track the ability of government organizations supporting GIS functions to continue 

mission-essential functions and services.
Response Federal Interagency Operational Plan 

B.2-16

 Identify and record mitigation successes and missed opportunities associated with the 

impending hazards, including mitigation opportunities that may have reduced or 

eliminated the risk, if taken. 

 Monitor other actual or potential incidents across the country to see how they may affect 

incident operations or resource requirements. 

Administration and Support 

All Situational Assessment core capability stakeholders will follow their predefined activation, 

notification, deployment, and deactivation procedures. 
Response Federal Interagency Operational Plan 

B.3-1 

Appendix 3 to Annex B: Geospatial

Purpose 

The purpose of this appendix is to describe geospatial support for the delivery of the Planning and 

Situational Assessment core capabilities. 

The Planning (P) critical task and Situational Assessment (SA) critical tasks are as follows: 

 P-Critical Task-1. Develop operational plans at the Federal level and in the states and territories 

that adequately identify critical objectives based on the planning requirements, provide a 

complete and integrated picture of the sequence and scope of the tasks to achieve the objectives, 

and are implementable within the time frame contemplated in the plan using available resources. 

 SA-Critical Task-1. Deliver information sufficient to inform decision making regarding 

immediate lifesaving and life-sustaining activities, and engage governmental, private, and civic 

sector resources within and outside of the affected area to meet basic human needs and stabilize 

the incident. 

 SA-Critical Task-2. Deliver enhanced information to reinforce ongoing lifesaving and lifesustaining activities, and engage governmental, private, and civic sector resources within and 

outside of the affected area to meet basic human needs, stabilize the incident, and transition to 

recovery. 

Geospatial tools are used to visually depict actual or projected information about resources and the 

operational environment to inform planning in anticipation of an incident and for post-incident 

planning. It is often used to integrate assessments, situation reports, and incident notification into a 

common operating picture and as a data fusion and analysis tool to synthesize many kinds and 

sources of data and imagery. 

Situation 

GIS and geospatial mapping products are essential tools for gaining situational awareness during all 

phases of a disaster. A good map is one that shows relevant information in the most concise and 

organized manner using the best available data. 

 Situational awareness addresses procedures for describing the operational environment, including 

threats and hazards. This occurs during continuous monitoring of the national situation, so that 

emerging crises can be analyzed in order to determine the specific nature of the threat and to 

notify decision makers.14

 Situational understanding is the product of applying analysis and judgment to relevant 

information to determine the relationships among the mission and operational variables. 

Situational understanding is used to assess progress and make execution and adjustment 

decisions. Situational understanding will change throughout response operations as the event 

evolves. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. 

 

14 For more information, see Joint Publication 5-0: Joint Operation Planning. 
Response Federal Interagency Operational Plan

B.3-2

Mission

Federal interagency partners will deliver Geospatial Concept of Operations (GeoCONOPS)-

developed information sufficient to inform decision making regarding immediate and ongoing 

lifesaving and life-sustaining activities and engage public and private sector and NGOs’ resources 

within and outside of the affected area to meet basic human needs and stabilize the incident.

Execution

Concept of Operations

The Homeland Security GeoCONOPS is intended to identify and align the geospatial resources that 

are required to support the National Response Framework (NRF), ESF, and supporting Federal 

mission partners across the mission areas. The development of the GeoCONOPS for homeland 

security and emergency management operations ensures that timely and accurate geospatial data is 

shared across the entire geospatial community, resulting in better informed decision making across 

all phases of an incident.

The GeoCONOPS community concept is comprised of various response components, each of which 

performs specific duties supporting emergency management and homeland security. All of these 

parts link to reduce confusion and inform decision makers in disaster and recovery operations. The 

intent of the GeoCONOPS is to define roles and responsibilities of groups integral to emergency 

operations, from local communities (field level) upward to all levels of government.

Phase 1

Federal departments and agencies coordinate with local, state, tribal, territorial, and insular area 

governments; NGOs; and the private sector, as it applies to their statutory mission, to develop, 

maintain, or enhance operational plans, guidance, and modeling or remote sensing capabilities. 

Regional Geospatial Coordinators (RGC) collaborate with local, state, tribal, territorial, and insular 

area partners to identify additional sources of information and to prioritize areas most likely to be 

impacted by an incident, based on updated population and demographic data. Predictive modeling is 

conducted to aid in the identification of capability shortfalls and integrated into response operations 

planning.

Phase 2

ESF #5 collects, analyzes, processes, and disseminates information regarding the incident to facilitate 

situational awareness and planning. As event information is collected at the local, state, tribal, 

territorial, insular area, and Federal levels, additional information is produced and compiled by the 

geospatial community to support the incident ICP, which covers the essential elements of 

information, assimilated to inform operational coordination see Appendix 2 of Annex B. Products 

developed to support the ICP represent a specific period of time and use the U.S. National Grid to 

maintain a consistent geo-referencing format.

Essential Elements of Information

Immediately following an event, priority is given to the collection of key information on the nature 

and scope of damages. This data is formally defined as essential elements of information and 

typically collected under the guidance of an ICP. The essential elements of information contribute 

directly to situational awareness and revolve around a time-based reporting cycle. The overall list of 

essential elements of information may vary by a specific event or type, but generally include 

information such as: disaster boundaries, socio-economic impacts, and status of communications, 

transportation systems, and critical infrastructure.
Response Federal Interagency Operational Plan

B.3-3

The information collection and analysis process evolves through the life cycle of the event. Initially, 

predictive modeling may provide estimates for an essential element of information, prior to field 

information becoming available. As response operations progress, essential elements of information 

will be populated with data gathered from situation reports, on-scene reports, and other informational 

sources. As priorities shift to sustained response and short-term recovery, the ICP is adjusted to 

reflect changing requirements and the essential elements of information adjust as the key activities 

determine what information is essential.

Authoritative Data

For the purpose of the GeoCONOPS, authoritative data owned and/or produced by the Federal 

entities supporting the NRF is defined as follows:

 Rational Authority. Federal departments and agencies are, by default, the “authoritative” 

sources for the data or services that they produce or for which they have a statutory 

responsibility.

 Expert Authority. Scientifically authoritative data is defined in the realm of the various 

professions under which the standards and methodology for data are created.

An authoritative data source is the entity trusted because of a subjective belief that it is the “best” or 

“most accurate” source for a specific data theme. The owner or authoritative source of any geospatial 

data is responsible for defining the business rules for the access and sharing of that information 

across the stakeholder community. The data provider should identify restrictions that may inhibit the 

mission at For Official Use Only level and establish classification at lowest level possible.

The RGC in the RRCC quickly seek to gain full situational awareness of ongoing operations and 

emerging events to determine the extent and capability of the affected states to manage the incident. 

Should the incident exceed a state’s capabilities to respond and recover, the RRCC will serve as a 

fully functioning, multiagency coordination center that is staffed with the support of the ESFs. The 

RRCC enables the successful coordination and delivery of Federal resources and geospatial 

information as they flow toward the affected area. The RRCC staff reviews and adjudicates 

competing resource requirements.

RRCC Transition to IMAT

Prior to an incident, the established relationship with local, state, tribal, territorial, and insular area 

geospatial coordinators is through the RGC. The RGC supports the IMAT Geospatial Intelligence 

Unit Leader in establishing relationships with key state geospatial contacts, and is responsible for 

maintaining these relationships during normal operations, so that they can be activated once an 

incident occurs. The RGC should be able to provide the following to an IMAT Geospatial 

Intelligence Unit Leader (or other IMAT Planning Section personnel, as necessary) prior to, or 

immediately following, the IMAT’s on-scene deployment:

 Contact information for key GIS personnel in the state

 Existing state or local GIS organizations with access to data or imagery, a GIS viewer, and what 

the process would be for gaining access

 Copies of any GIS products, or unique data, generated by local, regional, and/or state personnel 

that would support the UCG’s decision-making capabilities.

GIS products and services, those remotely sensed and those developed by GIS, are incorporated into 

relevant data and products needed to produce event-specific analysis and situational awareness 

products. Products are distributed to partners through identified information-sharing strategies.
Response Federal Interagency Operational Plan

B.3-4

Multiagency geospatial conference calls are conducted to coordinate geospatial activities between 

Federal interagency partners.

During response operations, GIS products are categorized by damage assessment, lifesaving, and 

recovery functions.

Phase 3a

GIS products utilized throughout the response are updated to reflect short- and long-term recovery 

operations. GIS mapping and analysis products support the coordination, community planning, and 

economic development efforts during the transition from short- to long-term recovery.

Per the IAP, GIS data can inform national, regional, and incident-level personnel by displaying all 

incident response facilities operating in support of the UCG, as well as other locations of interest.

Lessons learned in the provision of science and technology capabilities, including geospatial assets 

and associated geospatial data and modeling, should be reflected in an interagency assessment or 

AAR that evaluates the overall performance of capabilities, coordination structures, and provision of 

geospatial resources as described in the GeoCONOPS.

Coordinating Structure

The Geospatial Community

Within the geospatial community, five critical components must operate successfully to ensure 

successful delivery of services. These organizational components are divided by function, as follows:

 Defense Support of Civil Authorities

 Information/Support Services

 Infrastructure

 People

 Operations/Coordination.

Of these, four parts—civil support, information/support services, infrastructure, and people—all 

collect and analyze information for the fifth part, Operations/Coordination.

Defense Support of Civil Authorities

The Defense Support of Civil Authorities component involves DoD support to civil authorities. DoD 

provides information identifying the geographic location and characteristics of natural and 

constructed feature in a given area for disasters throughout the Nation.

The main organizations that provide this information are the National Geospatial Intelligence Agency 

(NGA), Defense Threat Reduction Agency, and the U.S. Northern Command.

Information/Support Services

The Information/Support Services component provides border, geological, modeling and weather 

data during a disaster.

The main organizations that provide this data are the Department of Commerce (DOC)/National 

Oceanic and Atmospheric Administration (NOAA), U.S. Customs and Border Protection, the DHS 

Office of Cybersecurity and Communications, Defense Threat Reduction Agency, and the USGS.

These departments and agencies employ the Interagency Modeling and Atmospheric Assessment 

Center (IMAAC) as well as FEMA methodology for estimating potential losses from disasters via the 
Response Federal Interagency Operational Plan 

B.3-5 

Hazus software. The DHS IMAAC serves as the coordinating entity for the determination of the most 

appropriate atmospheric dispersion model for a particular incident for delivery of a single Federal 

prediction to all responders, for incidents requiring a coordinated Federal Response. IMAAC 

comprises Federal interagency partners, including DHS, DoD, the Department of Energy (DOE), 

EPA, DOC/NOAA, the Nuclear Regulatory Commission, and the National Aeronautics and Space 

Administration. 

Infrastructure 

The Infrastructure component provides assessment information during an emergency for structures 

such as buildings, dams, levees, and schools. This group also determines the impact to the local 

community and its environment. 

Key entities making these assessments are: USACE, the U.S. Forest Service, DOE, EPA, USCG, the 

Department of Transportation, DHS National Protection and Programs Directorate, and FEMA 

Public Assistance. 

People 

The People component provides information regarding the types of services survivors receive. These 

include lifesaving measures, shelter, health-related, legal and employment information. Comprising 

the People group is: the Department of Justice, HHS, FEMA, and the USDA. 

Operations/Coordination 

The Operations/Coordination group, having incorporated information and analysis from the other 

four groups, adapts this data to cover damage assessment, lifesaving, and recovery and mitigation 

themes. The Operations/Coordination segment is the central access point for Requests for 

Information and Requests for Assistance. 

The primary organizations that gather and distribute this information are the DHS NOC, the NICC, 

the NRCC, RRCC, and JFOs. 

Structures 

To ensure access to critical geospatial information and products, personnel must be readily available 

to support the many entities engaged in incident operations. This level of specific operational support 

provides shared situational awareness and geospatial tools to the managers of Multiagency 

Coordination Centers and field facilities. 

Geospatial staff and teams typically fall under the Planning Section within NIMS and Incident 

Command System but may be assigned to Operations or other areas within the NIMS structure once 

there is an elevated threat, the plans should be updated based on the current situation versus 

exercises. 

An effective operational response will rely heavily on establishing and following a regular 

operational tempo in concert with interagency partners, and other stakeholders. IAA’s Mission 

Assignments, PSMAs, Memoranda of Understanding, and Memoranda of Agreement will be 

leveraged during all phases to support surge requirements, in coordination with local, state, tribal, 

territorial, and insular area authorities. 

Collaboration Groups 

To enhance information-sharing capabilities across the geospatial community, the standard 

distributions are: 
Response Federal Interagency Operational Plan 

B.3-6 

 The Interagency Remote Sensing Coordination Cell (IRSCC) is a body of remote sensing 

mission owners with capabilities that enable primary Federal responders to plan, coordinate, 

acquire, analyze, publish, and disseminate situational knowledge. The IRSCC provides visibility 

of the remote sensing missions that are the statutory responsibility of the member organizations. 

The IRSCC Executive Secretariat handles the provision of shared situational awareness through 

daily reporting and convening the IRSCC Working Group as the IRSCC Coordination Group 

during response operations. 

 The Homeland Infrastructure Foundation-level Data Working Group’s Program Partners 

Working Group, which includes DHS, DoD, NGA, and the USGS, have contributed funding 

toward a regional force of geospatial analysts and information exchange brokers called 

Homeland Infrastructure Foundation-level Data to the Regions. These personnel support the 

Office of Infrastructure Protection field personnel like Protective Security Advisors and 

Chemical Security Inspectors. Operationally, the Homeland Infrastructure Foundation-level Data 

to the Regions staff report directly to the Regional Directors throughout Office of Infrastructure 

Protection located throughout the country, and can provide normal operations data collection and 

geospatial production support, as well as augmented incident management capabilities for 

enhanced awareness of Critical Infrastructure status, and the overall Critical Infrastructure 

Protection mission. 

National Operations Center 

The NOC is the principal operations center for DHS and provides shared situational awareness for 

the entire Federal Government, as well as for local, state, tribal, territorial, and insular area entities, 

as appropriate. The NOC establishes information sharing as detailed in Appendix 2 to Annex B. 

National Infrastructure Coordinating Center 

The NICC within the National Protection and Programs Directorate coordinates the national program 

to reduce risks to the Nation’s critical infrastructure and to strengthen national preparedness, timely 

response, and rapid recovery following an incident. 

Geospatial and Technical Group 

NRCC’s Geospatial and Technical Group develops specialized reports, analyzes presentations, and 

coordinates with other situational awareness functions. The Geospatial and Technical Group 

identifies and selects operational geospatial information from internal and external databases for 

integration with specified situational awareness viewers. The group integrates geospatial information 

from external partners, including but not limited to other Federal departments and agencies, 

academia, and warning centers; incorporates all relevant data for incident-specific situational 

awareness and/or geospatial analysis; and provides technical and mapping expertise required to 

support National Response Coordination Staff members. 
Response Federal Interagency Operational Plan 

B.3-7 

Table B.3-1: Geospatial Support Resources 

Support JFO NOC NICC NRCC RRCC

Operational Geospatial Intelligence 

Unit in the JFO provides 

GIS and remote sensing 

support to local, state, 

tribal and Federal 

government agencies 

and may be located at or 

near the incident area of 

operations or state EOC. 

Products range from 

map production to field 

data collection, as well 

as: Quick look reports, 

Spot reports, and 

Situation reports.

The NOC is focused on 

gathering threat, incident, 

and event data, 

coordinating the 

enhancement of data, and 

coordinating to provide 

situational awareness.

Daily support

Quick look reports

Spot reports

Situation reports

The Geospatial and 

Technical Group is the 

primary geospatial 

production entity for all 

Federal operations during 

Stafford Act activations. 

NGA, USGS, USACE, and 

other Federal geospatial 

offices provide geospatial 

information to the 

Geospatial and Technical 

Group through liaison 

activities as part of the 

Situational Awareness 

Group.

Geospatial 

Intelligence Unit 

in the planning 

section provides 

all regional GIS 

and remote 

sensing support. 

Products range 

from map 

production to 

field data 

collection.

GIS The GIS analyst 

supports JFO incident 

response operations by 

coordinating the 

production of GIS maps 

and analysis; in support 

of state EOCs, and other 

field elements as 

needed/requested.

The GIS desk in NOC 

provides geospatial 

production and geospatial 

data visualization to 

support the mission. The 

GIS desk provides GIS 

subject matter expertise, 

imagery, and data 

requirements to support 

production capabilities to 

DHS Office of Intelligence 

and Analysis. The NOC 

GIS watch desk serves as 

a liaison and coordination 

point with the NGA support 

team.

The GIS analyst 

supports NICC during 

steady state and 

response operations. 

The Office of Cyber 

and Infrastructure 

Analysis provides 

support to the NICC.15

Base map imagery; 

event boundaries such 

as hurricane cones, 

wildfire perimeters, 

contamination areas, 

and significant areas of 

concern.

The MAC supports NRCC 

through the GIS 

coordinator desk. Products 

include visualization of 

flood area, modeled 

hurricane impacts, Hazus 

outputs, disaster 

declaration areas, damage 

locations, and FEMA 

applicant locations.

The MAC addresses ad 

hoc requests for 

information related to the 

event at the headquarters 

and field levels.

 

15 OCIA was established in 2014 within NPPD to provide critical infrastructure risk analysis, decision support, and modeling capabilities to public and private 

sector partners 
Response Federal Interagency Operational Plan 

B.3-8 

Support JFO NOC NICC NRCC RRCC

Remote 

Sensing

FEMA’s Remote 

Sensing Specialists may 

be activated in support 

of the JFO Geospatial 

Intelligence Unit.

Requirements for 

imagery are submitted to 

the RGC.

The IRSCC ensures 

Federal airborne assets 

and sensors are tasked 

efficiently.

IRSCC provides postevent imagery 

collection coordination 

with NRCC on behalf of 

NICC and Incident 

Management Center.

Imagery is focused on 

the impact area.

Located in NRCC, the 

remote sensing specialist 

organizes imagery 

collection and processing 

through various entities.

Remote sensing 

requirements 

are organized 

by the remote 

sensing 

specialist in the 

Geospatial 

Intelligence Unit.

Modeling FEMA’s Remote 

Sensing Specialists may 

be activated in support 

of the JFO Geospatial 

Intelligence Unit.

Requirements for 

imagery are submitted to 

the RGC.

Chemical, Biological, 

Radiological, Nuclear, and 

high-yield Explosives 

incidents, fires, and other 

events can create smoke, 

gas, or particulate plumes. 

Situational awareness of 

downwind consequences 

of such plumes is 

important.

IMAAC serves as the 

single integration point for 

modeling, production, and 

dissemination of Federal 

dispersion modeling and 

predictive products, during 

a coordinated Federal 

response.

The National 

Infrastructure 

Simulation and 

Analysis Center 

performs event- driven 

rapid analysis using a 

suite of mapping and 

analysis tools for rapid 

infrastructure analysis.

The MAC produces 

Hazards United StatesMulti-hazard (Hazus-MH) 

runs of record for FEMA 

and uses established 

dissemination protocol for 

sharing standardized 

products.

Hazus-MH 

information is 

prioritized and 

utilized to 

support fieldlevel disaster 

operations.
Response Federal Interagency Operational Plan 

B.3-9 

Resources 

GIS and/or remote sensing products and services to support damage assessments, lifesaving, and 

recovery GIS mission areas are detailed in the DHS GeoCONOPS. 

Refining Remote Sensing Needs to Support Response 

While Civil Air Patrol, government departments and agencies, or commercial airborne vendors may 

already be collecting aerial imagery, the FEMA RGC in the affected area will be responsible for 

providing the initial remote sensing and other geospatial data requirements in alignment with 

state/local Requests for Assistance and the Regional Support Plan. The RGC should begin fusing 

available data and defining collection priorities. 

The RGC should use National Weather Service (NWS) and National Environmental Data and 

Information Service (NESDIS) reporting and satellite pictures and data and LandScan population 

data, combined with other data sources, to: 

 Identify areas of interest 

 Refine/identify areas that are most likely to affect populated areas 

 Prioritize areas of interest based on population/demographic information. 

Areas of interest may be adjusted immediately after a disaster to refine areas not previously identified 

by the NWS or other agency assessments. 

Aerial and Satellite Imagery 

Remote sensing is the acquisition of information (typically imagery) from aerial or satellite sensors. 

Imagery can provide critical information about an event that can be integrated into GIS to produce 

maps or analytic databases. This information can be operationally exploited by emergency managers 

and decision makers at all levels of the response structure. 

Projected uses include: 

 Detecting pollution in or toxic contamination of water and soil 

 Assessing the impact of drought on agriculture 

 Providing a broad indication of damage 

 Assessing levels and patterns of damage within disaster areas 

 Assessing scope and extent of debris fields within disaster areas. 

Remote Sensing Data Acquisition 

Civil Air Patrol imagery, as well as various other publicly-available remote sensing data, can be 

downloaded using the Hazards Data Distribution System provided by the USGS. Licensed satellite 

imagery (e.g., Quickbird, SPOT, and IKONOS) and other restricted products are also made available 

once a user signs up for an account and requests access to the restricted portal. The USGS/Hazards 

Data Distribution System also catalogs and posts pre-event Moderate-resolution Imaging 

Spectroradiometer and Landsat for declared disaster and emergency operation areas of interest. 

Hazus-MH provides loss estimates for flood, hurricane (wind), and earthquake events. Hazus-MH 

provides estimates on impact to physical damage to residential and commercial buildings, schools, 

critical facilities, and infrastructure; economic loss, including business interruption, repair, and 

reconstruction costs; and social impacts, including estimates of shelter requirements, displaced 
Response Federal Interagency Operational Plan 

B.3-10

households, and population exposed to floods, earthquakes, and hurricanes. Specifically, Hazus-MH 

provides the following: 

 Spatial boundaries of hazard or event 

 Damage to essential facilities 

 Casualties 

 Shelter requirements 

 Economic loss. 

IMAAC provides interagency coordination to use the most appropriate atmospheric dispersion model 

for a particular incident and for the delivery of a single Federal prediction to all responders, during a 

coordinated Federal response. Specifically, IMAAC provides plume projection and lethality and 

dosage forecasts. During volcanic activity, NOAA/NESDIS will be used for the definitive 

information regarding ash cloud activity. 

Administration and Support 

All GIS and remote sensing stakeholders will follow their predefined activation, notification, 

deployment, and deactivation procedures. 
Response Federal Interagency Operational Plan 

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Annex C: Operational Coordination

Purpose 

The purpose of this annex is to describe the delivery of the Operational Coordination core capability 

within the Response mission area. 

The Operational Coordination core capability helps to establish and maintain a unified and 

coordinated operational structure and process that appropriately integrates all critical stakeholders 

and supports the execution of core capabilities. 

The Operational Coordination (OCD) critical tasks are as follows: 

 OCD-Critical Task-1. Mobilize all critical resources, establish command, control, and 

coordination structures within the affected community and other coordinating bodies in 

surrounding communities and across the Nation, and maintain, as needed, throughout the 

duration of an incident. 

 OCD-Critical Task-2. Enhance and maintain National Incident Management System (NIMS)-

consistent coordination structures to meet basic human needs, stabilize the incident, and 

transition to recovery. 

Operational Coordination directs, organizes, orchestrates, and provides strategic information for the 

provision of lifesaving activities and resources through established coordinating mechanisms. 

Appendices to Annex C describe the details of the conduct of lifesaving and life-sustaining 

operations that are being conducted in preparation of or support to an incident. The OCD core 

capability annex synchronizes and supports the effective execution of the other 13 Response core 

capabilities. Appendix 9 of Annex C depicts the synchronization of these activities. 

The core functions of the other annexes within the Response Federal Interagency Operational Plan 

(FIOP) enable the Operational Coordination core capability. 

Situation 

A limited understanding of the OCD environment will impact Federal interagency partners’ ability to 

establish and maintain a unified and coordinated operational structure and process to respond to the 

incident and provide for survivors’ needs.

Local, state, tribal, territorial, and insular area governments are functioning and operating from their 

designated emergency operations centers. Due to the severity and scope of the incident, an immediate 

request for a Stafford Act declaration from the Governors of the impacted states is granted. The 

Emergency Management Assistance Compact (EMAC) is in effect and providing immediate state-tostate resource and logistics support, but is unable to fulfill all needs, requiring reliance on the whole 

community. All coalitions of nongovernmental organizations (NGO) that are able to support response 

efforts have not been pre-identified, leaving NGOs unaware of the Federal emergency management 

system and ongoing/planned efforts, yet should be active and engaged. 

The delivery of the OCD core capability is contingent upon stakeholders’ awareness of their specific 

roles and responsibilities across all five mission areas, particularly under varied scenarios that may 

alter lines of authority. Prioritization and adjudication of resources is another key component of 

OCD, as the allocation of shared resources is dependent upon the priorities of both the operational 

and political sides of the decision-making structure. These specific risks are expanded upon in greater 

detail in Appendix 1 to Annex B. 
Response Federal Interagency Operational Plan 

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Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. 

Mission 

Federal interagency partners use NIMS to establish a coordination structure by developing a single 

set of objectives; using a collective, strategic approach; improving information flow and 

coordination; creating a common understanding of joint priorities and restrictions; ensuring that no 

department’s or agency’s legal authorities are compromised or neglected; and optimizing the 

combined efforts of all agencies under a single plan. 

Execution 

Concept of Operations 

The Federal Government provides varying degrees of response and recovery support to local, state, 

tribal, territorial, and insular area governments depending on the authorities invoked. The degree of 

Federal assistance depends on the severity of the incident and the ability of local, state, tribal, 

territorial, and insular area entities to manage the response to the incident and any associated 

cascading incidents. Under the Stafford Act, when the primary responsibility for response rests with 

the Federal Government, the President may issue an emergency declaration and deploy people and 

resources without a declaration request from a Governor. A whole community approach is used to 

leverage both governmental and nongovernmental expertise and resources to increase the efficiency 

and immediacy of support to lifesaving and life-sustaining activities.16

When possible, Federal interagency partners will utilize agency resources and authorities to prepare 

for an incident and to initiate appropriate preparatory and mitigating measures to reduce 

vulnerabilities. Once an incident occurs, the priorities shift from preparedness activities to response 

activities to save and sustain lives, property, and the environment. Across all mission areas, 

establishing on-scene safety and conducting lifesaving and life-sustaining activities are the priority. 

Phase 1 

Local, state, tribal, territorial, insular area, and Federal entities determine existing logistics and 

resource capabilities, develop all-hazards plans and procedures, and conduct training and exercises to 

validate existing plans. Federal priorities during this phase include preparing to respond. When there 

is a warning or credible threat before a major disaster or emergency declaration, the Stafford Act 

authorizes FEMA to deploy and pre-position Federal response personnel and equipment to reduce 

immediate threats to life, property, the public, employees, and responder health and safety and to 

improve the timeliness of its response. Actions are limited to pre-deployment until a declaration is 

made. 

Phase 2 

Federal priorities include the immediate deployment of available critical national assets for 

conducting lifesaving and life-sustaining activities in anticipation of local, state, tribal, territorial, and 

insular area needs; gaining shared situational awareness to determine the scope of additional Federal 

 

16 The Tribal Coordination Support Annex to the National Response Framework outlines how Federal response 

operations are conducted in partnership with federally-recognized tribes. For more information, please see the Tribal 

Coordination Support Annex. 
Response Federal Interagency Operational Plan 

C-3 

support; and alerting key personnel, departments, and agencies to assist in saving lives and reducing 

casualties. 

Figure C-1 illustrates the key components of the response process and identifies the interdependency 

of the Situational Assessment core capability in supporting the coordination of response operations. 

Figure C-1: Response Process 

Following the initial impacts of an incident, Federal coordination and operations centers, such as the 

National Response Coordination Center (NRCC) and Regional Response Coordination Centers 

(RRCC) are activated. The NRCC is activated by the FEMA Administrator, or his or her designee. 

The RRCC is activated by the Regional Administrator, or his or her designee. Upon activation, these 

centers immediately notify and activate appropriate on-call response elements for immediate 

deployment to the affected area. The NRCC, in close coordination with the affected Region(s), 

begins to push pre-identified teams, equipment, and personnel to the impacted area. Movement of 

these assets is sequenced to arrive at Incident Support Bases (ISB) in an appropriate order and 

quantity. The RRCC utilizes the Regional Support Plan to coordinate the deployment of resources to 

the affected area. Once the Region(s) shifts operational control to the Federal Coordinating Officer 

(FCO), distribution management may revert to a pull strategy for resource sustainment that 

coordinates the regional request for commodities prior to sending resources. The lead agency makes 

decisions regarding the prioritization, movement, and distribution of resources, including 

adjudication of multiple high-priority resources. Efforts will be made to adhere to applicable plans 

and procedures in place for resource adjudication, in coordination with planning, and in accordance 

with shared situational assessment, as appropriate. 

Unified Coordination Groups (UCG) may be established following an incident that affects multiple 

states and/or regions. Comprised of senior leaders representing Federal and state interests and, in 

certain circumstances, tribal and territorial governments, local jurisdictions, private sector, and/or 

NGOs, the UCGs focus on providing support to on-scene response efforts and conducting broader 

support operations that may extend beyond the incident site. Unified Coordination must include 

robust operations, planning, public information, and logistics capabilities that integrate local, state, 

and Federal—as well as tribal, territorial, and insular area governments—personnel when 

appropriate, so that all levels of government work together to achieve unity of effort. The UCG leads 

the unified coordination staff, where staffing is based on incident requirements. The UCG typically 

consists of the FCO, the State Coordinating Officer, Federal Disaster Recovery Coordinator, the 

Recovery Advance Evaluation Team and senior officials from other agencies or organizations with 
Response Federal Interagency Operational Plan 

C-4 

primary statutory or jurisdictional responsibility—as well as significant operational responsibility for 

one or more functions of an incident response.17

The Federal Disaster Recovery Coordinator functions as a deputy to the FCO at the Joint Field Office 

(JFO) to coordinate Federal recovery efforts on the FCO’s behalf. The Federal Disaster Recovery 

Coordinator is the coordinating lead for Recovery Support Function (RSF) activities related to that 

specific disaster and provides the leadership and direction that will guide all RSF activities. The FCO 

and State Coordinating Officer may operate out of an Initial Operating Facility (IOF) until a JFO is 

activated. The JFO then acts as the primary Federal Incident Management structure in the field 

(during a multi-state incident, additional JFOs may be opened in any affected state). Personnel from 

Federal and state-level departments and agencies, other jurisdictional entities, the private sector, and 

NGOs may be requested to staff various levels of the JFO, depending on the incident management 

requirements of the incident response. To ensure efficient operations—regardless of overall disaster 

impact—the JFO is scalable and flexible in required functions, staff, and resources that are 

employed. 

Federal departments and agencies routinely manage the response to incidents under their own 

statutory authority or under a delegated authority. If a Federal department or agency with primary 

responsibility and authority for handling an incident requires assistance beyond that identified in 

existing processes or agreements, that agency may ask the Department of Homeland Security (DHS) 

to coordinate assistance from other Federal departments and agencies. In this case, the requesting 

entity will submit a request to the Secretary of Homeland Security through the National Operations 

Center (NOC), including a summary of the situation, types and amount of resources needed, financial 

information, and any other appropriate details. Upon approval of the request, the Secretary issues an 

operations order to the NOC, which coordinates the activation of the appropriate Emergency Support 

Functions (ESF) through the NRCC. 

Phase 3a 

Response actions transition to short-term recovery operations (e.g., repopulation of the impacted 

area) and long-term recovery operations (e.g., ongoing recovery and mitigation activities). The 

transition to recovery may be initiated and conducted simultaneously with response activities when 

one or more of the following conditions exist: ESFs are demobilized by the FCO; the state initiates 

its own recovery plan and/or sets up its own recovery organization; and when it is determined that the 

recovery needs of the impacted population exceeds local community capabilities. 

The JFO is the central coordination point for local, state, tribal, territorial, insular area, and Federal 

governments for recovery and mitigation assistance. After the JFO closes, ongoing recovery and 

mitigation activities transition to individual agencies with primary jurisdiction utilizing the mission 

area coordination structures, as appropriate. Federal partners work directly with their Regional 

offices to administer and monitor recovery and mitigation programs. 

In many incidents, no clear transition exists from one phase to the next, and phases may run 

concurrently. As such, during incidents that affect multiple states and/or FEMA Regions, different 

jurisdictions may transition through the phases at various paces depending on the impact to the 

respective geographical area. The NRF fully transitions to the National Disaster Recovery 

 

17 The term State Coordinating Officer is used to describe the official appointed by the chief executive of a state, 

commonwealth, territory, federally-recognized tribe, or insular area to coordinate disaster assistance efforts with 

those of the Federal Government. Federally-recognized tribes having lands within an affected state can elect to work 

through the state’s State Coordinating Officer or appoint a separate official to serve as the tribe’s State Coordinating 

Officer (sometimes referred to as a Tribal Coordinating Officer) to work directly with Federal partners. 
Response Federal Interagency Operational Plan 

C-5 

Framework when the disaster-specific mission objectives (MO) of the ESFs are met and all ESFs 

demobilize. 

Coordinating Structure 

All ESFs support the delivery of the Operational Coordination core capability. Once the President or 

responsible department or agency head determines the nature and extent of Federal involvement, the 

coordinating structure will modify processes and protocols, as necessary, to respond to the specific 

needs of the incident. The nature of the incident will determine the lead agency. The lead agency is 

responsible for developing a coordination/authority structure. 

The Incident Command System (ICS), part of NIMS, is adaptable for incidents of any type, scope, 

and complexity, directs on-scene emergency management activities and maintains command and 

control of on-scene incident operations. The Federal Government uses Multiagency Coordination 

Systems to coordinate entities to ensure unity of effort for domestic incident management. At the 

field level, the Federal Government uses ICS structure for JFOs. When other mission areas are 

involved in response activities, they will integrate into the ICS structure. An overview of the ICS 

organizational structure is illustrated in Figure C-2.

Figure C-2: Incident Command System Structure 

Pursuant to Presidential directive, the Secretary of Homeland Security is the principal Federal official 

for domestic incident management. Pursuant to the Homeland Security Act of 2002, the Secretary 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. The Secretary shall 
Response Federal Interagency Operational Plan 

C-6 

coordinate the Federal Government’s resources utilized in response to, or recovery from terrorist 

attacks, major disasters, or other emergencies.18 As part of these responsibilities, the Secretary 

coordinates with Federal entities to provide for Federal unity of effort in support of domestic incident 

management. The Secretary’s responsibilities also include management of the broad emergency 

management and response authorities of FEMA and other DHS components. The Secretary of 

Homeland Security may monitor activities and activate specific response mechanisms to support 

other Federal departments and agencies. 

All Federal departments and agencies shall cooperate with the Secretary of Homeland Security in 

executing domestic incident management duties. Figure C-3 depicts this organization by these 

categories at the local, regional, state, tribal, territorial, insular area, and Federal levels. Detailed 

information about each category is provided below. 

Figure C-3: Domestic Incident Management Coordination Structure 

Investigation, Intelligence Collection, and Law Enforcement Response and Coordination 

The Department of Justice (DOJ), through the FBI, shall execute lead responsibility for domestic 

intelligence and counterterrorism investigations, in cooperation with other Federal departments and 

agencies engaged in activities to protect national security; shall coordinate the activities of the other 

members of the law enforcement community and, where applicable, the Intelligence Community, to 

detect, prevent, preempt, mitigate and disrupt terrorist attacks, including those against the Nation’s 

critical infrastructure; shall lead the Federal operational law enforcement response and investigative 

activities necessary to prevent or resolve imminent terrorist threats or attacks; and has primary 

responsibility for searching for, finding, and neutralizing weapons of mass destruction within the 

 

18 Except for those activities that may interfere with the authority of the Attorney General or the FBI Director, as 

described in PPD-8.
Response Federal Interagency Operational Plan 

C-7 

United States and its territories in response to information received through law enforcement, 

intelligence, or other channels. The FBI organizes the following command and operations centers: 

 The Strategic Information and Operations Center (SIOC) acts as the FBI’s worldwide Emergency 

Operations Center (EOC) by: maintaining situational awareness of criminal or terrorist threats, 

critical incidents, and crises; providing command, control, communications connectivity, and the 

FBI’s common operating picture for managing operational responses; establishing the 

headquarters command post and developing connectivity to FBI Joint Operations Centers (JOC), 

led by FBI Special Agents in Charge; and sharing information and intelligence with other EOCs 

at all levels of government, to include the DHS NOC. 

 The JOC is a multijurisdictional interagency investigative and intelligence operations center led 

by the FBI. The JOC operates only during a crisis situation or for special events that require 

additional coordination between participating entities. The JOC coordinates and/or directs law 

enforcement investigations, intelligence, and operational activities in response to a threat or 

terrorist incident, major criminal investigation, or special event, including a National Special 

Security Event (NSSE). In order to provide successful investigative case management, the JOC 

may be activated and made operational at any point in the response to a threat or incident. 

 The FBI Special Agent in Charge can establish forward command posts to manage such things as 

crime scenes, tactical operations, render safe operations, etc., based on the type and number of 

incident sites. 

Defense Support of Civil Authorities 

The Secretary of Defense provides defense support to civil authorities for domestic incidents, as 

directed by the President, or when requested by a Federal department or agency and consistent with 

military readiness and appropriate under the circumstances and the law. 19 Normally, the Secretary of 

Defense directs the U.S. armed forces providing support to civil authorities through a Geographic 

Combatant Command (i.e., U.S. Northern Command and U.S. Pacific Command). A Defense 

Coordinating Officer (DCO) is assigned to each FEMA region; the DCO coordinates requests for 

DoD support from the lead Federal agency for response operations. 

DCO responsibilities include: Commander of the Defense Coordinating Element (DCE) representing 

DoD in the affected area, serving as a liaison to local, state, tribal, territorial, insular area, and 

Federal departments and agencies, reviewing mission assignments, recommending the best military 

resource for the mission, and providing support to deployed DoD forces. 

The U.S. Army Corps of Engineers (USACE) may respond under separate established authorities and 

as mission-assigned by FEMA. As a Primary or Support Agency, USACE provides assistance 

directly to FEMA through ESF #3; requests for assistance are not coordinated and processed through 

the DCO (and assistance is not under the operational control of a Joint Task Force Commander). 

The DoD, including USACE, also provides support to other Federal departments and agencies under 

certain non-Stafford Act authorities, in accordance with DoD policy. 

 

19 Exception: In response to a request for assistance from a civilian authority, under imminently serious conditions, 

and if time does not permit approval from higher authority, DoD officials may provide an immediate response by 

temporarily employing the resources under their control, subject to any supplemental direction provided by higher 

headquarters, to save lives, prevent human suffering, or mitigate great property damage within the United States. 

Immediate response authority does not permit actions that would subject civilians to the use of military power that is 

regulatory, prescriptive, proscriptive, or compulsory. (DoD Directive 3025.18) 
Response Federal Interagency Operational Plan 

C-8 

Other DoD organizations may have unique agreements for support. For instance, DoD installation 

commanders may provide support to local jurisdictions under mutual aid agreements, when 

requested. In addition, the Defense Logistics Agency (DLA) has an interagency agreement with 

FEMA to provide commodities including fuel to civil authorities responding to disasters. 

International Support 

The Department of State (DOS) is responsible for all communication and coordination between the 

U.S. Government and other nations regarding the response to a domestic crisis. DOS is also 

responsible for managing U.S. Government relations, policies, and activities as related to the 

international dimension of the crisis. International coordination within the context of a domestic 

incident requires close cooperation with foreign counterparts, multilateral/international organizations, 

and the private sector in the United States and abroad. DOS supports DHS and other Federal 

department and agency efforts by providing knowledge about and engaging with other Nations and in 

leading and facilitating the international aspects of a domestic incident. The International Assistance 

System, led primarily by DOS, FEMA, and the U.S. Agency for International Development 

(USAID), manages the flow of international resources, including government-to-government 

assistance and assistance from international organizations (e.g., North Atlantic Treaty Organization 

and the United Nations), into the United States under the NRF for a Presidentially declared major 

disaster as described under the Stafford Act. Pursuant to Presidential directive, the Secretary of State 

and DOS have the responsibility to protect national security and U.S. interests and citizens abroad 

while coordinating across other Federal departments and agencies. The Department of Health and 

Human Services (HHS) may provide technical expertise for international requests for Public Health, 

Healthcare, and Emergency Medical Services assets and coordinates with international partners on 

the acceptance of donations. Some types of international assistance are pre-identified, and bilateral 

agreements are already established. For example, the USDA/Forest Service and Department of the 

Interior have joint bilateral agreements with several countries for wildland firefighting support. 

Domestic Incident Management 

The following operations centers and entities are responsible for the coordination of response 

operations and integration with other mission areas, as appropriate: 

National Level 

The NOC is the principal operations center for DHS and shall provide situational awareness, 

information fusion, and communications in the event of a natural disaster, act of terrorism, or other 

disaster for protection and consequence management activities. The NOC facilitates Federal 

coordination, information sharing, and operational coordination with the FBI’s SIOC and the DoD’s 

National Military Command Center. 

The SIOC is the FBI’s headquarters-level central communications center, maintaining redundant and 

secure communications with all national crisis centers, the FBI Director, the Attorney General, and 

the President of the United States, regardless of their physical locations. The SIOC acts as the FBI’s 

worldwide EOC by: maintaining situational awareness of criminal or terrorist threats, critical 

incidents, and crises; providing command, control, communications connectivity, and the FBI’s 

common operating picture for managing operational responses; establishing the headquarters 

command post and developing connectivity to JOCs; and sharing information and intelligence with 

other EOCs at all levels of government, to include the DHS NOC. 

The National Military Command Center maintains situational awareness on worldwide events for the 

Secretary of Defense and Chairman of the Joint Chiefs of Staff. It may alert other Federal 
Response Federal Interagency Operational Plan 

C-9 

departments and agencies to developing terrorist threats and natural crises and coordinate any DoD 

support required through the designated Combatant Commander. 

The NRCC serves as the primary operations center for national incident response and recovery 

operations, as well as national resource coordination. The NRCC monitors incidents and supports the 

efforts of Regional and field components. Only issues that cannot be resolved at the RRCC and JFO 

levels are elevated to the NRCC for resolution. Federal departments and agencies maintain additional 

operations centers that provide shared situational awareness within their jurisdiction or functional 

areas and share information with the NRCC (or other entities) in accordance with their statutory 

responsibilities and authorities. The operation and staffing of these facilities is contingent upon the 

respective agency’s scope and role in the incident response.

The National Infrastructure Coordinating Center (NICC) serves as the primary infrastructure 

protection entity for incident management coordination during steady-state and incident response 

activities. During the response to an incident, the NICC provides the critical infrastructure shared 

situational awareness, which describes the impacts to critical infrastructure, key actions, and 

concerns reported from the critical infrastructure Sector-Specific Agencies (SSA), as well as 

infrastructure protection operational actions and decisions. The NICC utilizes the Information 

Sharing and Analysis Centers to provide a mechanism for coordination and information sharing 

between government and industry partners. 

Private sector organizations contribute to response efforts through partnerships with each level of 

government. During an incident, key private sector partners have a direct link to emergency 

managers and, in some cases, are involved in the decision-making process. Communities may not be 

able to respond effectively to incidents without private sector resources; therefore, strong cooperative 

relations between government agencies and the private sector are essential. Additional information 

about private sector resources and services is available in Annex D. 

In addition to private sector resources, NGOs provide additional operational coordination support to 

response operations through the National Voluntary Organizations Active in Disaster (National 

VOAD) and the American Red Cross. National VOAD, a consortium of approximately 65 national 

organizations and 55 territorial and state equivalents, allows NGOs to share knowledge and resources 

to help disaster survivors and their communities. The American Red Cross, chartered by Congress to 

maintain a system of domestic and international relief, has a legal status of “a Federal 

instrumentality” and supports the delivery of multiple core capabilities. 

Regional Level 

Within each of the 10 FEMA Regional Offices (see Figure C-4) is a RRCC. Each RRCC is primarily 

staffed by FEMA employees who are responsible for the day-to-day monitoring of the situation in the 

Regional area of responsibility—even when not activated under a disaster. The RRCC expands to 

become an interagency facility after an incident impacts its area of responsibility. RRCC personnel 

are the FEMA Regional Administrators’ mechanism for executing regional responsibilities.

Operating under the direction of the FEMA Regional Administrator, RRCC personnel assess the 

situation; coordinate Federal response efforts across JFOs, state EOCs, and fusion centers in their 

Region after an incident; contribute to the development of shared situational awareness; and maintain 

connectivity with fusion centers, Federal Executive Boards, and other Federal and state operations 

and coordination centers until an FCO is deployed and ready to take operational control. Ongoing 

RRCC operations transition to a JFO once it is established.
Response Federal Interagency Operational Plan 

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Figure C-4: FEMA Regions 

When responding to an incident, the NRCC and RRCC are supported by the ESFs, private sector 

organizations, and NGOs, as appropriate for the size and complexity of the incident. The ESFs are 

activated at the regional level by the FEMA Regional Administrator. 

A JFO is a temporary Federal facility established locally to coordinate operational Federal assistance 

activities to the affected jurisdiction to provide a central location for coordination of response efforts 

by the private sector, NGOs, and all levels of government. The RRCC supports the transition of 

operations to one or more JFOs, but continues to monitor the incident as it progresses. The JFO UCG 

provides strategic leadership for the JFO and may staff the JFO in part or in full from its own 

resources, or request support from ESF #5, as required. Some Federal departments and agencies 

establish incident and area command structures, generally in conjunction with their counterpart state, 

tribal, and/or local agencies, to carry out the ESF missions. 

State and Local Level 

At the state level, multiagency coordination occurs within individual state EOCs. The state EOC is 

the physical location where multiagency coordination occurs. Every state maintains an EOC to 

manage incidents requiring state-level assistance. A key function of state EOC personnel is to ensure 

that those who are located at the scene have the resources (e.g., personnel, tools, equipment) they 

need for the coordinated response. Some states have additional EOCs for coordinating information 

and resources within a region or area. State EOCs are typically organized by a combination of ESFs 

or other coordinating structures aligned to disciplines or capabilities. Chief elected and appointed 

officials are located at the state EOC, as well as personnel supporting core functions under the state’s 

Comprehensive Emergency Management Plan. Many states involve their tribal counterparts within 

the EOC to ensure that tribal coordinating structures are integrated into the delivery of capabilities 

and that tribal needs are addressed. 

State and major urban area fusion centers serve as focal points within the local and state environment 

for the receipt, analysis, gathering, and sharing of threat-related information between the Federal 

Government, local, state, tribal, territorial, insular area, and private sector partners. Fusion centers are 

owned and operated by local and state entities with support from Federal partners in the form of 

deployed personnel, training, technical assistance, exercise support, security clearances, and 
Response Federal Interagency Operational Plan 

C-11

connectivity to Federal systems, technology, and grant funding. Fusion centers have a close 

relationship with the FBI Joint Terrorism Task Forces in that they share state and local-developed 

threat information, including suspicious activity reporting. Fusion centers also coordinate with the 

FBI JOC when it is operational for incidents involving law enforcement response, counterterrorism, 

counterintelligence, and criminal investigative activities, as appropriate. The JOC is staffed with a 

Command Group comprising applicable local, state, and Federal law enforcement and is led by the 

FBI Special Agent in Charge of an FBI Division. It acts as an interagency command and control 

center for a response to a credible terrorist threat or incident. 

Tribal Coordinating Structures 

The Tribal Assistance Coordination Group, or TAC-G, is a Multiagency Coordination group that can 

be convened to assist federally-recognized tribes during emergencies and disasters, as well as 

providing information and technical assistance for tribal emergency management programs. The 

TAC-G is led and managed by the Bureau of Indian Affairs Emergency Management Program. The 

TAC-G consists of partners from all levels of government (county, local, state, tribal, Federal, etc.) as 

well as non-profit aid organizations and the private sector. 

Conduct of Operations 

The Operational Coordination core capability annex synchronizes and supports the effective 

execution of the other 13 Response core capabilities. The following list indicates the remaining core 

capabilities and location for their corresponding activities and coordinating instructions: 

 Planning. Refer to Annex B 

 Public Information and Warning. Refer to Annex C, Appendix 1 

 Critical Transportation. Refer to Annex D, Appendix 1 

 Environmental Response/Health and Safety. Refer to Annex C, Appendix 3 

 Fatality Management Services. Refer to Annex C, Appendix 4 

 Infrastructure Systems. Refer to Annex C, Appendix 5 

 Mass Care Services. Refer to Annex C, Appendix 6 

 Mass Search and Rescue Operations. Refer to Annex C, Appendix 7 

 On-scene Security, Protection, and Law Enforcement. Refer to Annex C, Appendix 8 

 Operational Communications. Refer to Annex E 

 Logistics and Supply Chain Management. Refer to Annex D 

 Public Health, Healthcare, and Emergency Medical Services. Refer to Annex C, Appendix 2 

 Situational Assessment. Refer to Annex B, Appendix 2. 

 Fire Management and Suppression. Refer to Annex C, Appendix 9. 

ESFs that provide support to the delivery of the Operational Coordination core capability are 

included in the following section. 
Response Federal Interagency Operational Plan 

C-12

Operational Coordination Tasks 

Mission Objectives 

 OCD-MO-1: Facilitate a planning, training, and exercising process utilizing NIMS to enable 

responders to work in a coordinated manner to meet the needs of disaster survivors. (Supports 

OCD-Critical Task-2) 

 OCD-MO-2: Gain and maintain shared situational awareness and understanding through a 

consistent operational analysis. (Supports OCD-Critical Task-1, OCD-Critical Task-2) 

 OCD-MO-3: Establish and maintain command, control, and coordination utilizing NIMS. 

(Supports OCD-Critical Task-2) 

 OCD-MO-4: Mobilize and establish Federal assets within the impacted area to support the 

Federal command and coordination structure. (Supports OCD-Critical Task-1) 

 OCD-MO-5: Facilitate the execution of Response core capabilities across local, state, tribal, 

territorial, insular area, Federal, private sector, and NGOs. (Supports OCD-Critical Task-1, OCDCritical Task-2) 

Phase 1a—Normal Operations 

End State: Federal departments and agencies have utilized NIMS-consistent plans, training, and 

exercising to ensure a coordinated command structure. (Supports OCD-MO-1)

 Tasks by Phase, by ESF 

 All 

 Develop and review pre-scripted mission assignments (PSMA), memoranda of 

understanding (MOU), and interagency agreements (IAA) with Federal departments and 

agencies to provide supplemental personnel and resources. 

 ESF #5 

 Pre-designate key Federal officials and identify response organizational structures that 

could be utilized in response operations (e.g., FCOs). 

 Coordinate between Federal departments and agencies to strengthen relationships and 

identify shortfalls. 

 Review, update, and exercise key personnel rosters with accurate contact information 

(e.g., JFOs, special teams). 

 Maintain effective communications by updating point of contact lists, verifying video 

teleconference and teleconference capabilities, and testing information systems. 

 ESF #8 

 Enhance the preparedness and resiliency of health and medical systems, as well as 

communities through preparedness grants, mitigation efforts, readiness guidance, and 

support in planning, training, and exercises. 

Phase 1b—Elevated Threat 

End State: Situational reports have been analyzed and addressed to plan for the potential activation of 

local, regional, state, tribal, territorial, insular area, and Federal coordination structures. (Supports 

OCD-MO-2) 
Response Federal Interagency Operational Plan 

C-13

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Continue to analyze and assess situational reports for the potential activation of local, 

regional, state, tribal, territorial, insular area, and Federal coordination structures. (Supports OCDMO- 2) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: The NOC has been activated, and preliminary situational assessment has begun. Federal 

response personnel have been alerted for deployment. (Supports OCD-MO-2, OCD-MO-3, OCDMO-4) 

 Tasks by Phase, by ESF 

 All 

 Identify Federal emergency assets and capabilities available for deployment. 

 Conduct national-level operational planning with the respective region(s) to develop 

unified Federal response plans. 

 Establish coordination and planning processes with other Federal departments and 

agencies at the national and regional levels. 

 Activate continuity of operations plans. 

 ESF #1 

 Implement appropriate air traffic and airspace management measures. 

 ESF #5 

 Employ mitigation, infrastructure protection, and private sector expertise amid the 

incident to inform decisions. 

 Detect and resolve resource allocation issues identified at the multiagency coordination 

centers. 

 Coordinate activation of ESFs, the size and composition of the organizational structure, 

the level of staffing, and the key personnel required for the disaster response. 

 Establish a Federal support infrastructure in the affected region or state in anticipation of 

requirements for hazard mitigation, response, and recovery. 

 Conduct resource allocation and tasking through the multiagency coordination center 

using mission assignment process. 

 Communicate with the affected region and RRCC and convene periodic video 

teleconferences with all appropriate parties to coordinate Federal and state operations. 
Response Federal Interagency Operational Plan 

C-14

 Assign and/or deploy staff to the NRCC and the RRCC(s). 

 Provide situation reports and other information, as requested, to the NOC, in accordance 

with NOC standard operating procedure(s) and protocols. 

 Maintain accountability of all deployed Federal supplies and resources. 

 Coordinate with the RRCC(s) to maintain shared situational awareness and understanding 

on the resourcing and delivery of required resources. 

 Provide an informational link between the NRCC, RRCC, other Federal department and 

agency operations centers, and other NOC components. 

 Engage the private sector and NGOs to determine resource availability within the 

impacted area. 

 Coordinate with local, regional, state, tribal, territorial, insular area, and Federal 

resources to conduct a rapid needs assessment of the affected area. 

 Determine the need to activate Federal resources in advance of formal requests for 

assistance. 

 Develop initial orders (e.g., Warning Order, Prepare to Activate/Deploy Order, and 

Operations Order). 

 Activate ESF #5 personnel and teams and increase staffing and the operational tempo at 

the NRCC and RRCC(s), as necessary; actions include alert, notification, and situation 

reporting in coordination with the NOC Watch. 

 Coordinate overall staffing of Federal emergency management activities at multiagency 

coordination centers. 

 Issue activation mission assignments to other Federal departments and agencies, and 

establish reporting and communications protocols with the activated agencies. 

 Activate the Incident Communications Emergency Plan. 

 Activate the National Incident Communications Conference Line (NICCL) and establish 

and maintain lines of communication with state authorities for incident venues. 

 Activate the NRCC (including Transportation Movement Coordination Unit) and RRCCs 

with incident oversight. 

 Conduct interagency conference calls and develop an initial communications strategy and 

plan. 

 Activate the International Assistance System through DOS and alert USAID/Office of 

U.S. Foreign Disaster Assistance. 

 Consolidate requests for information at the national-level and track response deadlines 

through the Homeland Security Information Network (HSIN). 

 Establish a national operations tempo (i.e., incident reporting timeline) in coordination 

with the regions. 

 Initiate daily NRCC video teleconferences. 

 Draft an initial National Support Plan. 

 Implement the Incident Information Collection Plan. 
Response Federal Interagency Operational Plan 

C-15

 Submit requests for surge account funding to begin mobilizing and deploying personnel 

and equipment, as necessary. 

 Provide technical assistance on mission assignment eligibility to the RRCC as requested. 

 Coordinate and request geospatial and geographic information system (GIS) support 

needed for incident management. 

 Maintain a link between field components until an IOF or JFO are established. 

 Process gubernatorial requests for major disaster or emergency declarations for all 

affected states. 

 Review and implement (resource support in accordance with commodity resource 

prioritization matrix) approved plan based upon the incident. 

 Alert the General Services Administration’s (GSA) Office of Mission Assurance, who in 

turn will notify the Federal Acquisition Service, Public Building Service, and the Senior 

Emergency Management Team. 

 Schedule the Distribution Management Strategy Working Group with partners. 

 Initiate deployment actions for the DCO and supporting DCE to the IOF or JFO. 

 Initiate alert and notifications to American Red Cross disaster staff and senior leadership. 

 ESF #6 

 Support established reception processing sites with needed evacuee services and assist 

with coordinating transportation assets to transport evacuees from the reception centers to 

general population shelters 

 Coordinate with National VOAD and NGO partners to provide personnel and equipment 

to support response. 

 Deploy American Red Cross leadership and coordinate organization-wide availability 

and recruitment of disaster workers. 

 ESF #7 

 Establish required field facilities (e.g., JFO, Joint Information Center [JIC]) and arrange 

for supplies and equipment to support Federal activities related to the management of an 

incident. 

 Activate and deploy Life Support Vehicles and Mobile Emergency Response Support 

(MERS) Emergency Operations Vehicles to the affected area to establish a temporary 

operating location for the FCO and support staff. 

 Coordinate with ESFs for infrastructure damage assessments. 

 Request space requirements from all partners. 

 Source vendors and/or request ESF mission assignments to fulfill sustainment, 

replenishment, and transportation of all requirements. 

 Confirm reservists and transportation staffing levels/operational capabilities with the 

increase of NRCC staffing and operational levels. 

 Deploy GSA leasing specialists in regions to procure JFOs and other facilities through 

the Public Building Service, as requested. 
Response Federal Interagency Operational Plan 

C-16

 Notify vendors of incident and possible requests for support through the Federal 

Acquisition Service, as required. 

 Provide Federal land availability in disaster area, as required. 

 Modify all PSMAs into mission assignments for submission. 

 ESF #8 

 Activate the Secretary of Health and Human Services’ Emergency Management Group 

and the HHS/Office of the Assistant Secretary for Preparedness and Response Incident 

Response Coordination Team (IRCT). 

 Initiate deployment actions for IRCT and medical response teams and supply caches. 

 Notify FEMA and other ESF #8 partners as required. 

 Provide professional and technical assistance for behavioral health, environmental health, 

food safety and defense, Public Health, Healthcare, and Emergency Medical Services. 

 Appoint a Federal health official as the HHS representative to the JFO. 

 Provide professional and technical assistance for behavioral health, environmental health, 

food safety and defense, Public Health, Healthcare, and Emergency Medical Services 

ESF #8 functional areas of responsibility. 

 ESF #10 

 Activate ESF #10 at the regional and national level to provide coordination, technical 

assistance, and response for oil/hazardous materials releases. 

 ESF #11 

 Assist the Resource Management Group, through U.S. Department of Agriculture 

(USDA), to determine requirements for evacuating the affected population/pets from 

impacted areas. 

 Gather USDA Foods’ inventories in affected area and share with ESF #6.

 Facilitate whole community multiagency coordination with NGOs (e.g., Heritage 

Emergency National Task Force) for protection of natural and cultural resources and 

historic properties. 

 ESF #12 

 Coordinate with the state emergency management offices in communicating fueling 

locations for emergency responders. 

 ESF #15 

 Deploy initial ESF #15 personnel to NRCC, RRCC, and JFO/IOF. 

 Hold NICCL conference calls for interagency ESF #15 coordination. 

 Hold State Incident Communications Coordination Line calls for state-to-state and 

Federal/state ESF #15 coordination. 

 Stand up National Business Emergency Operations Center (NBEOC) and hold NBEOC 

coordination calls with private sector partners to identify initial impacts and needs. 
Response Federal Interagency Operational Plan 

C-17

Phase 2b—Deployment 

End State: Based on shared situational awareness and operational analysis, the adjudication, 

prioritization, and allocation of resources and personnel have been coordinated through the lead 

agency’s coordinating structure. Personnel and resource deployment has been initiated. (Supports 

OCD-MO-2, OCD-MO-3, OCD-MO-4) 

 Tasks by Phase, by ESF 

 ESF #1 

 Identify temporary alternative transportation solutions to be implemented when primary 

systems or routes are unavailable or overwhelmed. 

 Coordinate regulatory waivers, exemptions, and permits. 

 ESF #3 

 Provide coordination, response, and technical assistance to support the rapid recovery and 

reconstitution of critical waterways, channels, and ports. 

 Provide structural specialist expertise to support inspection of mass care facilities and 

urban search and rescue (US&R) operations in coordination with ESF #9. 

 ESF #4 

 Provide radio communications systems to support firefighters, law enforcement officers, 

and incident response operations. 

 Provide command, control, and coordination resources, to include Incident Management 

Teams, Area Command Teams, and Multiagency Coordination Group support personnel, 

to local, state, tribal, territorial, insular area, and Federal departments and agencies. 

 ESF #5 

 Analyze, prioritize, adjudicate, and allocate resources to identify and employ Federal 

resources to support operations. 

 Engage in incident action, current, and future planning functions in coordination with the 

other ESFs engaged in the operation and with those who are operating under department 

and agency statutory authorities. 

 Activate and deploy national and regional Incident Management Assistance Teams 

(IMAT) and other necessary teams to the affected area to establish an IOF/JFO and to 

begin coordination of the Federal response. 

 Activate and deploy additional Federal assets and personnel, when requested and 

approved. 

 Activate and deploy the Movement Coordination Center in coordination with state(s). 

 Activate and coordinate the deployment of the FEMA/Logistics Management Directorate 

(LMD) Fly Away Team. 

 Send qualified representatives to staff interagency EOCs (e.g., FBI SIOC, NRCC) as 

rostered or directed. 

 Identify and disseminate national-level, incident-specific essential elements of 

information to the HSIN. 
Response Federal Interagency Operational Plan 

C-18

 Prepare and issue ESF #3 pre-declaration PSMAs for debris removal and temporary 

power. 

 Activate and deploy USACE ESF #3 Team Leaders and Assistant Team Leaders to the 

NRCC, RRCC, and JFOs (once established). 

 Review regional recommendations for Major Declaration and Preliminary Disaster 

Assessments. 

 Prepared to deploy a USAID Liaison Officer to the NRCC, if required. 

 Deploy Logisticians and Field Officers to the JFO and/or Mobilization Center to assist 

with matching commodity donations from international donors to consignees, if required. 

 ESF #6 

 Support the mobilization and implementation of mechanisms to track the movement of 

evacuees, resources, household pets, service and assistance animals, medical equipment, 

and luggage. 

 ESF #8 

 Deploy IRCT, response teams, and supplies, and provide liaisons to Federal, regional, 

and state emergency operations centers and JFOs. 

 ESF #9 

 Coordinate the resolution of conflicting operational demands for search and rescue (SAR) 

response resources. 

 ESF #10 

 Deploy ESF #10 personnel to response venues as needed, including the NRCC, RRCC, 

JFO, state/local EOCs, and affected area. As ESF #10 responders arrive on-site, establish 

incident/unified command structures. 

 Coordinate with FEMA and local, state, tribal, territorial, and insular area officials to 

establish high-priority response objectives and needs. 

 ESF #11 

 Facilitate whole community multiagency coordination with NGOs for animal response 

activities. 

 In coordination with ESF #6, provide USDA Foods and infant formula and baby as 

needed as requested. Review state requests to operate a D-SNAP (Once approved by 

USDA Foods and Nutrition Service, a D-SNAP is usually implemented in Phase 3a, 

Short-term Recovery.) 

 Facilitate whole community multiagency coordination with NGOs (e.g., Heritage 

Emergency National Task Force) for protection of natural and cultural resources and 

historic properties. 

 ESF #12 

 Serve as the Federal point of contact with the energy industry for information sharing and 

requests for assistance from private and public-sector owners and operators. 
Response Federal Interagency Operational Plan 

C-19

 ESF #15 

 Coordinate ESF #15 actions, including messaging and staffing, with state and Federal 

partners. 

Phase 2c—Sustained Response 

End State: Initial Federal resources have been distributed to the ISB, the JFO has been established, 

and IMATs have conducted necessary operations for the initial support of basic needs to disaster 

survivors. Response operations across the impacted area have been coordinated in accordance with 

NIMS. (Supports OCD-MO-2, OCD-MO-3, OCD-MO-4, OCD-MO-5)

 Tasks by Phase, by ESF 

 ESF #1 

 Provide longer-term coordination of the restoration and recovery of the affected 

transportation systems and infrastructure, if required. 

 ESF #5 

 Coordinate the demobilization of Federal assistance. Each section of the JFO continues to 

execute its responsibility until the Federal presence is no longer required by the state and 

the operation is terminated. 

 Deploy continuity support teams to assist in reconstitution of critical government 

facilities and services. 

 ESF #6 

 Support the management, operation, consolidation and closing of congregate and noncongregate facilities. 

 Coordinate with local, state, tribal, territorial, insular area governments, and NGOs to 

facilitate the return of evacuees to their pre-disaster or alternate locations. 

 Develop an initial temporary housing strategy to transition survivors from congregate to 

non-congregate alternatives and provides relocation assistance or interim housing 

solutions for households unable to return to their pre-disaster residence. 

 Identify housing resources from the private sector and other Federal departments and 

agencies available to disaster survivors. 

 ESF #8 

 Transport seriously ill or injured patients and medical needs populations from casualty 

collection points in the impacted area to designated reception facilities, utilizing the 

National Disaster Medical System (NDMS) and the National Ambulance Contract, as 

required. 

 Coordinate the Federal response in support of emergency triage and pre-hospital 

treatment, patient regulation, and tracking. 

 ESF #10 

 Coordinate with FEMA and local, state, tribal, territorial, and insular area officials, to 

provide oil/hazardous materials response. 
Response Federal Interagency Operational Plan 

C-20

 ESF #11 

 Assist with critical needs assessments for animals, including household pets, service and 

assistance animals, and provide technical support for animal response needs and activities 

including evacuation support and emergency animal sheltering. 

 Facilitate whole community multiagency coordination with NGOs (e.g., Heritage 

Emergency National Task Force) for protection of natural and cultural resources and 

historic properties. 

 ESF #15 

 Coordinate with the affected state(s) to identify community leaders (e.g., grassroots, 

political, religious, education, business, cultural, ethnic) and neighborhood advocacy 

groups to assist in the rapid dissemination of information, identify unmet needs, establish 

an ongoing dialogue and information exchange, and facilitate collaborative local, state, 

tribal, territorial, insular area, and Federal planning and mutual support for disaster 

response. 

Phase 3a—Short-term Recovery 

End State: Coordination elements are transitioning to long-term recovery operations and focus on 

reintegration of survivors and restoration of basic services. (Supports OCD-MO-2, OCD-MO-3) 

 Tasks by Phase, by ESF 

 ESF #5 

 Deactivate selected ESFs that are no longer required to support operations. 

 Close out mission assignments and process invoices of other Federal departments and 

agencies. 

 Review after action reports and revise plans and procedures accordingly. 

 Archive mission assignments and historical files/records maintained during the incident. 

 Coordinate with other Federal departments and agencies to assess lessons learned for 

future planning requirements. 

Administration and Support 

Federal personnel are activated through authorized channels, according to standard operating 

procedures developed by each responding Federal department or agency. 

In a Stafford Act incident, FEMA will initiate mission assignments to task other Federal departments 

and agencies to provide immediate, short-term emergency response assistance. Federal departments 

and agencies cannot be reimbursed for costs incurred while performing work under their disaster 

assistance authorities independent of the Stafford Act. Refer to the NRF and Incident Annexes for 

more detailed information. 

For non-Stafford Act incidents, Federal departments and agencies may utilize Federal-to-Federal 

support by executing inter/intra-agency reimbursable agreements, in accordance with applicable 

authorities. Federal departments and agencies providing mutual aid support may request 

reimbursement from the requesting agency for eligible expenditures, consistent with provisions of the 

Economy Act, unless other statutory authorities exist. 
Response Federal Interagency Operational Plan 

C-21

Several Federal departments and agencies have the authority to declare specific types of disasters or 

emergencies or to undertake response actions without a Stafford Act declaration. These authorities 

may be exercised independently of or as a component of a Federal response coordinated by the 

Secretary of Homeland Security under Presidential directive. Table C-1 includes examples of 

scenarios in which specific Federal departments and agencies, other than DHS, have the 

responsibility for coordinating response activities. 

Table C-1: Examples of Other Federal Departments and Agency Authorities20

Scenario Department/Agency Authorities

Agricultural and Food 

Incident

USDA The Secretary of Agriculture has the authority to 

declare an extraordinary emergency and take 

action due to the presence of a pest or disease 

of livestock that threatens livestock in the United 

States. (7 U.S.C. § 8306 [2007]).

The Secretary of Agriculture also has the 

authority to declare an extraordinary 

emergency and take action due to the 

presence of a plant pest or noxious weed whose 

presence threatens plants or plant products of 

the United States. (7 U.S.C. § 7715 [2007]).

Public Health Emergency21 HHS The Secretary of Health and Human Services 

has the authority to take actions to protect the 

public health and welfare, declare a public 

health emergency and to prepare for and 

respond to public health emergencies. (Public 

Health Service Act, 42

U.S.C. § 201).

Oil and Hazardous 

Materials Spills

Environmental 

Protection Agency 

(EPA) or U.S. Coast 

Guard (USCG)

EPA and USCG have the authority to take 

actions to respond to oil discharges and 

releases of hazardous substances, pollutants 

and contaminants, including leading the 

response. (42 U.S.C. § 9601, et seq., 33 U.S.C. 

§ 1251 et seq.) The EPA

Administrator and Commandant of USCG22

may also classify an oil discharge as a Spill of 

National Significance and designate senior 

officials to participate in the response. (40

C.F.R. § 300.323).24 Other Federal 

departments and agencies

also have certain response authorities under the 

same statutes, which have been delegated by 

the President in Executive Orders 12580 (Jan. 

23, 1987, 52 F.R. 2923, as amended) and

12777 (Oct. 22, 1991, 56 F.R. 54757, as 

amended).

20 These authorities may be exercised independently of, concurrently with, or become part of a Federal response 

coordinated by the Secretary of Homeland Security, pursuant to Presidential directive. 

21 A declaration of a public health emergency may make available any funds appropriated to the Public Health 

Emergency Fund or others see http://www.phe.gov/Preparedness/support/secauthority/Pages/default.aspx for more. 

22 See ESF #10 and the Oil/Chemical Incident Annex for more information on these authorities. 
Response Federal Interagency Operational Plan 

C-22

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Response Federal Interagency Operational Plan 

C.1-1 

Appendix 1 to Annex C: Public Information and Warning 

Purpose 

The purpose of this annex is to describe the Public Information and Warning core capability. 

The Public Information and Warning core capability delivers coordinated, prompt, reliable, and 

actionable information to the whole community through the use of clear, consistent, accessible, and 

culturally and linguistically appropriate methods to effectively relay information regarding any threat 

or hazard and, as appropriate, the actions being taken and the assistance made available. 

The Public Information and Warning (PI) critical tasks are as follows: 

 PI-Critical Task-1. Inform all affected segments of society by all means necessary, including 

accessible tools, of critical lifesaving and life-sustaining information to expedite the delivery of 

emergency services and aid the public to take protective actions. 

 PI-Critical Task-2. Deliver credible messages to inform ongoing emergency services and the 

public about protective measures and other life-sustaining actions and facilitate the transition to 

recovery. 

Situation 

The delivery of timely, credible information and warnings are essential for providing the public with 

lifesaving and life-sustaining information prior to, during, and following a catastrophic incident. 

Communications infrastructures will be severely impacted and traditional methods of communication 

with responders and survivors may be unavailable. The ability to receive and disseminate 

information to responders and survivors (including individuals with disabilities, those with limited 

English proficiency (LEP), and others with access and functional needs), obtain situational awareness 

and understanding, and develop and distribute accurate and timely warnings will be severely 

impacted. 

The timely restoration of the communications infrastructure is critical to saving and sustaining lives. 

Effective risk communications guide the public, news media, and other groups in responding to an 

incident and adhering to public safety measures. 

Risk communications principles are based on actions that build trust including: 

 Making accurate public announcements 

 Communicating in a candid manner 

 Utilizing easy to understand, comprehensive, factual, and accurate information that is accessible 

to all audiences, and being consistent about risk. 

Successful delivery of information and warnings requires coordinated pre-incident communications 

planning at the local, state, tribal, territorial, insular area, and Federal levels to ensure credible 

information is developed and disseminated to all segments of the public, including individuals with 

access and functional needs, such as individuals with disabilities, those from religious and racial and 

ethnically diverse backgrounds, and people with LEP in a timely manner. Public responsiveness to 

information and warnings is significantly enhanced through pre-incident awareness of basic 

preparedness and response measures. 
Response Federal Interagency Operational Plan 

C.1-2 

Assumptions 

General assumptions for the Response Federal Interagency Operational Plans (FIOP) have been 

identified in the base plan. 

Mission 

Federal interagency partners will provide critical lifesaving and life-sustaining information to 

emergency services and all segments of society, by any means necessary, while facilitating a 

transition to recovery. 

Execution 

Concept of Operations 

Phase 1 

Federal messaging focuses on preparedness information and activities, including: lifesaving 

messages required to protect survivors immediately following an incident; delivery of final 

preparedness actions and encouragement for individuals to be prepared to be self-sufficient for up to 

72 hours following an incident; defining the Federal response; and supporting local, state, tribal, 

territorial, and insular area entities’ instructions related to a specific threat or hazard. Messaging is 

also developed to inform the general public on what should be done prior to, during, and following 

an incident, including: making a disaster supply kit; having a family emergency plan; and visiting

http://www.ready.gov for additional information and resources. 

Pre-scripted informational releases are developed for multiple audiences and/or incidents such as the 

response to an improvised nuclear device or the proper procedure for boiling water after an incident. 

Pre-scripted informational releases are produced in multiple languages and are tailored to meet the 

requirements of accessible modes to allow delivery to individuals with access and functional needs, 

such as individuals with disabilities and are crafted with attention to psychological and behavioral 

considerations to reduce stress and promote effective decision making. 

Phase 2 

The Federal Emergency Management Agency’s (FEMA) external affairs resources are employed to 

conduct sustained operations in support of the FCO and the JFO. External affairs resources provide 

accurate, coordinated, and timely information to the intended audience, including governments, 

media, the private sector, and the local community. A Strategic Communications Plan is developed to 

support the Incident Action Plan (IAP), and a unified local, state, tribal, territorial, insular area, 

and/or Federal response message is established to include media access to responders, visuals, and 

transparency in operations. 

Strategic direction for public information and warning activities originates from the White House 

Director of Communications, DHS component Directors, ESF #15 leadership, and other Federal 

department and/or agency leadership. ESF #15 integrates the following components: JIC, 

Congressional Affairs (CA), Intergovernmental Affairs (IGA), Planning and Products, and the 

private sector to ensure members of the whole community receive key public information and 

warnings. 

Public information and warning activities are implemented in coordination with the DHS Office of 

Public Affairs (OPA), components of the NOC, and the Domestic Resilience Group, as well as the 
Response Federal Interagency Operational Plan 

C.1-3 

FBI JOC and SIOC, as appropriate.23 OPA’s Domestic Communication Strategy, a dynamic, 

evolving strategy that includes Federal department and/or agency options and actions, is activated in 

response to a terrorist incident. 

Public information and warnings are disseminated through a range of mechanisms, including formats 

for individuals with disabilities, LEP populations, and others with access and functional needs. These 

mechanisms are further described in the Communications Resources section of this appendix. 

Phase 3a 

During the transition to recovery, public messaging focuses on the availability of Federal disaster 

recovery assistance programs, rebuilding damaged infrastructure in affected areas, and completing 

the transition from response to recovery. During the Federal recovery support operation, all public 

information and communications are coordinated through ESF #15 (which supports all RSFs). 

Coordinating Structure 

All ESFs support the delivery of the Public Information and Warning core capability. Pursuant to 

Presidential directive, the Secretary of Homeland Security ensures that, as appropriate, incident 

information is prepared and disseminated to the public. 

ESF #15 is the means by which the Federal Government will conduct external affairs operations 

during an incident requiring a coordinated Federal response, as directed by the NRF. ESF #15 

coordinates Public Affairs, CA, IGA (local, state, tribal, territorial, and insular area), and the Private 

Sector offices through External Affairs. 

FEMA is the Primary Agency to implement ESF #15 and occupies multiple leadership positions in 

the field, particularly during a natural disaster. Lead roles for the incident are considered in 

accordance with the NRF. Special consideration is noted for the following: 

 The U.S. Secret Service leads external affairs and ESF #15 during NSSEs. These incidents 

frequently involve highly sensitive security operations where external affairs strategy and Federal 

visibility must be protected to ensure the success for the operation. 

 During a terrorist incident, a JFO may be established. Similarly, the FBI will establish a JOC 

within its affected field divisions. In the case of suspected acts of terrorism, or other criminal 

activity, the Attorney General of the United States and the Secretary of Homeland Security will 

advise the President of public messaging options. Information pertaining to the incident, 

perpetrators, threat, crime scene, number of survivors, or other information directly related to the 

investigation and corresponding intelligence gathering will come from the FBI’s JOC. The local 

FBI Special Agent in Charge, the Director of the FBI, and the Attorney General of the United 

States, in conjunction with those local, state, tribal, territorial, and insular area law enforcement 

components of the Unified Command structure, will release information as appropriate. 

Unauthorized releases may impact ongoing counterterrorism and law enforcement operations, 

place responders and the public at risk, and impact later prospective judicial actions. 

 During CBRNE incidents requiring a coordinated Federal response, the White House Office of 

Communications would likely provide strategic communications guidance and maintain overall 

authority over public information and warning activities. However, urgent public safety messages 

that are necessary to immediately save lives may be pre-authorized by specific guidance. For 

example, to save lives during a nuclear incident, upon receiving Presidential authorization, the 

 

23 In the case of imminent terrorist threats and attacks, see the Terrorism Incident Law Enforcement and 

Investigation Annex and national policy for additional coordination mechanisms. 
Response Federal Interagency Operational Plan 

C.1-4 

FEMA Operations Center might use elements of the Integrated Public Alert and Warning System 

(IPAWS) and other means to send public safety messages. The Nuclear Regulatory Commission 

(NRC) is the coordinating agency for security and resilience relative to incidents involving 

facilities and materials licensed by the NRC. The Department of Energy (DOE) is the 

coordinating agency for security and resilience relative to incidents involving transportation of 

radioactive materials shipped by or for DOE. 

 DoD is the coordinating agency for security and resilience relative to incidents involving nuclear 

weapons in DoD custody. 

 The National Aeronautics and Space Administration is the coordinating agency for security and 

resilience relative to incidents involving space vessels carrying nuclear materials. 

 EPA and USCG On-scene Coordinators (OSC) responding to oil and hazardous materials 

(including CBRNE) incidents may also need to communicate with the media and/or public on 

tactical operations and matters affecting public health and safety directly from the scene, 

particularly during the early stages of the emergency response. 

 The USDA is the coordinating agency for security and resilience relative to animal or plant 

health emergencies. 

DHS National Joint Information Center 

The National JIC serves as the Federal incident communications coordination center and is staffed by 

incident communications response personnel that rapidly mobilize to coordinate the Federal external 

communications effort. The National JIC coordinates with, and supports, the following: 

 White House Office of Communications 

 Secretary of Homeland Security 

 NOC

 Crisis Action Team 

 NRCC 

 NICC 

 FCO 

 JFO

 ESF #15 staff. 

Subject to the nature of the disaster, all NRF departments, agencies, and organizations may be a part 

of the external affairs operation. DHS Public Affairs will coordinate and solicit requests for staffing 

support with the Federal departments and agencies during an incident. 

For incidents where FEMA or other agencies have the lead role, an ESF #15 Operations Director 

may be delegated to lead the Federal interagency team. The ESF #15 organization is prescribed 

within the NRF and is intended to be scalable and flexible to support incident requirements. For 

Stafford Act incidents, the organization may be modified by the FCO and ESF #15 External Affairs 

Officer (EAO). The Secretary of Homeland Security, as the principal Federal official for domestic 

incidents, may in the cases of a catastrophic or a cascading incident, assign ESF #15 Deputy EAOs to 

each impacted state and/or region for coordination. 
Response Federal Interagency Operational Plan 

C.1-5 

Listed in Figure C.1-1 is a notional organizational chart and process flow for ESF #15 during an 

incident requiring a coordinated Federal response with an FCO. 

Figure C.1-1: National JIC Organization 

Joint Information Center 

The JIC supports the coordination of local, state, tribal, territorial, insular area, and Federal 

governments and private sector communications with the public. The JIC is the central point for 

coordination of incident information, public affairs activities, and media access to information 

regarding the latest incident. The JIC also serves as the media center for press briefings. 

Communications Resources 

Synchronization of public information and warnings is essential to save lives; protect health and 

safety; mitigate damage and impact to individuals, communities, and the environment; and facilitate 

recovery and mitigation information for individuals, families, businesses, governments, and the 

media. Pre-identified incident information and warning protocols, established in a joint effort by the 

Emergency Interoperability Consortium, the DHS Office of Emergency Communications, and the 

Office of Interoperability and Continuity sponsored Practitioners Steering Committee, are ready for 

immediate use during an incident requiring a coordinated Federal interagency response. Tools, 

resources, and supporting programs which Federal departments and agencies use to execute and 

synchronize these activities are listed and briefly described below. 

Communications Coordination Lines 

The NICCL, coordinated by the National JIC, is DHS’s mechanism for coordination with other 

Federal departments and agencies. The NICCL is the primary source for Federal-to-Federal 

information sharing, but may also include communications from impacted states and local 

communities. The NICCL can be a call-in conference or an open line that is monitored 24/7 for the 

exchange of information and updates. The State Incident Communications Conference Line (SICCL) 
Response Federal Interagency Operational Plan 

C.1-6 

is the coordination mechanism between states to foster information sharing and discussion of shared 

concerns and issues following an incident. The SICCL is a scheduled conference call and is 

established as needed. The SICCL allows states to remain engaged in the information-sharing 

process and participate in decision making. The Private Sector Incident Communications Conference 

Line (PICCL) is a standing line that DHS Public Affairs uses to provide timely public information to 

the critical infrastructure sectors and their affiliated entities during an incident response. During a 

response in which FEMA stands up the NBEOC, NBEOC Coordination calls may be initiated with 

private sector partners across various sectors. 

Integrated Public Alert and Warning System 

IPAWS provides integrated alert and warning services to local, state, tribal, territorial, insular area, 

and Federal authorities to address the general public, including individuals with access and functional 

needs, such as individuals with disabilities, those from religious and racial and ethnically diverse 

backgrounds, and people with LEP. IPAWS allows authorized alerting authorities to send one 

message which is disseminated simultaneously through multiple communications methods and 

devices to reach as many people as possible to save lives and protect property. IPAWS allows the 

President and/or delegated officials to address the American people during all emergency or disaster 

circumstances. IPAWS enables local, state, tribal, territorial, insular area, and Federal alert and 

warning emergency communication officials to access multiple broadcast and other Common 

Alerting Protocol compliant communications pathways such as the Emergency Alert System (EAS), 

Wireless Emergency Alerts (WEA) (formerly known as Commercial Mobile Alert System (CMAS), 

and National Weather Service (NWS) Dissemination Systems, and other unique alerting 

technologies, for the purpose of creating and activating alert and warning messages. 

The WEA component of IPAWS provides an interface to participating mobile service providers for 

the delivery of alert information to individual mobile devices located within the affected area. The 

IPAWS WEA capability provides public safety officials with the ability to send 90 character, 

geographically targeted, text-like alerts to the public, warning of imminent threats to life and 

property. The cellular industry is a critical partner in the implementation and operation of this alert 

capability. Figure C.1-2 demonstrates the IPAWS architecture. 
Response Federal Interagency Operational Plan 

C.1-7 

Figure C.1-2: IPAWS Architecture 

Emergency Alert System 

The EAS is a national public warning system that requires broadcasters, cable television systems, 

wireless cable systems, satellite digital audio radio service providers, and direct broadcast satellite 

providers to provide communications capability to the President and/or delegated officials to address 

the American people during a national emergency. The system may also be used by local, state, 

tribal, territorial, and insular area authorities to deliver important emergency information such as 

imminent threats, weather information, America’s Missing: Broadcasting Emergency Response 

(AMBER) alerts, and local incident information. The EAS is regulated by the Federal 

Communications Commission (FCC) and is managed by FEMA. In the event of a Presidential 

activation of the EAS, FEMA activates the EAS through the FEMA Operations Center. The 

distribution of EAS messages is reflected in Figure C.1-3. 
Response Federal Interagency Operational Plan 

C.1-8 

Figure C.1-3: EAS National Message Flow 

FEMA National Radio System 

The FEMA National Radio System is a High Frequency radio network which provides essential 

emergency communications capabilities between local, state, tribal, territorial, insular area, and 

Federal governments during emergencies or disasters. This system is regarded as a first responder 

communications mechanism which may be used to maintain reliable long- and short-range radio 

communications with affected disaster areas without dependence upon more susceptible commercial 

terrestrial and satellite telecommunications networks. 

National Oceanic and Atmospheric Administration Weather Radio All Hazards System 

The Department of Commerce (DOC)/National Oceanic and Atmospheric Administration (NOAA) 

NWS HazCollect system uses IPAWS for local, state, tribal, territorial, and insular area officials’ 

broadcasts emergency alert information to the public over the DOC/NOAA Weather Radio All 

Hazards system. 

Health Alert Network 

The Health Alert Network is the Centers for Disease Control and Prevention’s (CDC) primary 

method of sharing public health information with public information officers; local, state, tribal, 

territorial, insular area, and Federal public health practitioners; clinicians; and public health 

laboratories. 

National Terrorism Advisory System 

The National Terrorism Advisory System (NTAS) enables the timely distribution of detailed terrorist 

threat information to the public, government agencies, first responders, airports and other 
Response Federal Interagency Operational Plan 

C.1-9 

transportation hubs, and the private sector. NTAS Alerts are based on the nature of the threat and can 

be disseminated to targeted audiences. NTAS alerts provide a concise summary of the threat, 

information about actions being taken to ensure public safety, and recommended steps that 

individuals, communities, businesses and governments can take to help prevent or respond to the 

threat. 

Domestic Communications Strategy 

The Domestic Communication Strategy is a guidebook which provides options for public 

information strategies, complementing existing Federal plans and strategic guidance documents, 

which may be employed in the event of a domestic terrorist attack or a credible threat to the 

homeland. 

Disaster Relief and Recovery Program Resources 

FEMA provides a resource to assist survivors in applying for disaster assistance benefits. The 

www.disasterassistance.gov Web site provides an information source during incidents for survivors 

on information related to Federal assistance. 

Table C.1-1 depicts department, agency, or function roles and the assigned responsibilities with 

regard to the provision of public information and warning services. 

Table C.1-1: Roles and Responsibilities 

Department, 

Agency, or 

Function

Responsibility

JIC  Serves as a central point for coordination of incident information, public affairs 

activities, and media access to information regarding the latest developments.

 Incident JIC: is the physical location where all public affairs professionals 

involved in the response work together to provide critical emergency 

information, media response, and public affairs functions.

 Virtual JIC: links all participants through technological means (secure or nonsecure) when geographical restrictions, incident management requirements, 

and other limitations preclude physical attendance by public affairs leadership 

at a central location.

 Satellite JIC: is a forward-deployed component of an incident JIC.

 Area JIC: multiple JICs may be used when there are multiple JFOs to support 

the area command Unified Coordination structure and whenever multiple JICs 

are operating in support of the same or related incidents and jurisdictions.

FEMA External 

Affairs (EA), CA

Primary point of contact for all Congressional outreach and coordination at the 

JFO. The goal of CA is to be a credible and reliable source of information. The 

mission of CA is to contribute to the well-being of the Nation following an incident 

by coordinating a proactive and continuous dialogue between the Federal efforts 

and the Congressional delegation of the affected area. CA is responsible for the 

following:

 Coordination of the information exchange between DHS, FEMA, Members of 

Congress, and their staff.

 Responses to Congressional inquiries and casework.

 Arrangements for Congressional site visits to help members understand the 

local, state, tribal, territorial, insular area, and Federal response and recovery 

process.

 Development of a CA strategy for outreach and incident-specific objectives.
Response Federal Interagency Operational Plan 

C.1-10

Department, 

Agency, or 

Function 

Responsibility 

FEMA EA, IGA

(local, state, 

tribal, territorial, 

and insular area)

IGA establishes working relationships with local, state, tribal, territorial, and insular 

area entities to create and maintain an open, two-way line of communication 

between these groups and Federal departments and agencies.

FEMA EA,

International 

Affairs

International Affairs coordinates all foreign delegation visits by providing 

information briefings and site visits to impacted areas. International affairs serves 

as a liaison with DOS on all international activities including the donation of goods 

and services and assists with the coordination of foreign press by working with the 

Foreign Press Center at DOS.

FEMA EA, 

Private Sector

Private Sector is responsible for coordinating with established business networks 

and industry-specific related groups such as the U.S. Chamber of Commerce, 

other national networks, and state and regional networks. The private sector staff 

identifies issues that directly affect the private sector and the business community, 

to ensure employees are knowledgeable about recovery programs.

FEMA EA,

Planning and 

Products

 Supports lifesaving and life-sustaining communications by creating timely 

products to alert and advise the public, in coordination with local, state, tribal, 

territorial and insular area counterparts.

 Centralized strategic message planning and development.

 Establishes liaisons to different operational program areas for gathering timely, 

accurate information to share with the public.

 Develops all written external products and internal communications documents 

that other ESF #15 components share with stakeholders for unified messaging.

 Ensures information is available in accessible formats for the whole community, 

including LEP populations and those with access and functional needs.

FEMA National 

IMATs

EA is represented on National and Regional IMATs through an External Affairs 

Advisor. This person deploys with the IMAT in a notice incident prior to the 

expected incident and provides situational awareness to the Regional and 

Headquarters EA Offices. During a no-notice incident, the time between the 

deployment of the IMAT and EAO may be similar. The IMAT external affairs 

advisor provides support to the EAO as needed and as long as the IMAT is 

activated.

DHS Office 

Cybersecurity 

and 

Communications 

(CS&C)

CS&C is responsible for enhancing the security, resiliency, and reliability of the 

Nation’s cyber and communications infrastructure. CS&C actively engages the 

public and private sectors as well as international partners to prepare for, prevent, 

and respond to catastrophic incidents that could degrade or overwhelm strategic 

assets.

DHS Center for 

Faith-Based and 

Neighborhood 

Partnerships

The DHS Center for Faith-based and Neighborhood Partnerships has protocols to 

disseminate messaging to approximately 1,900 stakeholders. These stakeholders 

represent local, state, and national organizations that serve as community force 

multipliers among impacted populations. The DHS Center also has the capability

to increase communication reach to faith-based and community organizations 

through its Faith-based and Neighborhood partnership counterparts in 13 Federal 

agencies.
Response Federal Interagency Operational Plan 

C.1-11

Department, 

Agency, or 

Function 

Responsibility 

USCG The USCG has a range of external affairs personnel and offices arrayed around 

the Nation. While they are mainly located in coastal areas, they can be surged and 

deployed for contingency purposes to other incidents. Special response capability 

is provided by a Public Information Assist Team. This is a deployable, specialized 

Public Affairs team skilled in hazardous materials and environmental response, 

capable of supporting conventional, biological, and chemical incidents.

DOC/NOAA DOC/NOAA Weather Radio broadcasts, NWS warnings, watches, forecasts, and 

other non-weather related hazard information 24 hours a day. During an 

emergency, NWS forecasters interrupt routine weather programming and send out 

a special tone that activates weather radios in the listening area. Weather radios 

equipped with a special alarm tone feature can sound an alert and give immediate 

information about a life-threatening situation.

DOI The Department of the Interior and its bureaus provide coordinated, prompt, 

reliable, and actionable media and public information and warning to people within 

national parks, wildlife refuges, and other Department of the Interior-administered 

public lands. The Department and its bureaus also serve as a Public Information 

and Warning coordination node for incidents that occur on or impact tribal lands, 

the territories and the freely associated states.

HHS The HHS Assistant Secretary for Public Affairs (ASPA) assumes the lead in media 

response for public health, coordinated with and through the JIC. Depending on 

the nature of the incident or event, HHS ASPA may designate one of the HHS 

agencies (e.g., CDC, National Institutes of Health, Food and Drug Administration) 

to take the lead on public affairs activities with the responsibility of consulting with 

the HHS ASPA as they move forward to manage the incident communications. In 

the event of a terrorist incident, the FBI would be consulted before issuing 

sensitive media/press releases.

HHS ASPA coordinates the overall HHS Public Affairs planning, development, and 

implementation of emergency incident communications strategies and activities for 

the department. The HHS ASPA maintains a close liaison with the Secretary of 

Health and Human Services, White House, DHS, CDC Director, National Institutes 

of Health Director, Food and Drug Administration Commissioner, Assistant 

Secretary for Preparedness and Response, and other principles. HHS ASPA also 

directs all HHS/CDC Public Affairs Team operations and meets regularly with 

team leaders. HHS ASPA maintains the following team structure for incident 

response:

 Communications Services Division

 News Division

 Special Outreach Division

 Speech and Editorial Division

 Web Communications Division.

Department of 

Transportation 

(DOT)

The Office of the Secretary’s Public Affairs Office will coordinate the overall DOT 

response, maintaining close contact with DOT’s modal administration public affairs 

personnel. DOT maintains a contract for an Associated Press feed with eight 

stations. The Department of Public Affairs will look to DHS as the lead agency in 

coordinating a message. The Transportation Public Affairs message will, in turn, 

be managed solely by the Transportation Director of Public Affairs in coordination 

with other appropriate Federal agencies.
Response Federal Interagency Operational Plan 

C.1-12

Department, 

Agency, or 

Function 

Responsibility 

Department of 

Veterans Affairs 

(VA)

The VA maintains a national force of field external affairs personnel to support the 

wide network of facilities around the Nation. Field EAOs are located at each VA 

medical center, Regional Office, and cemetery. VA’s regional offices of public 

affairs are located in New York; Washington, DC; Atlanta; Chicago; Dallas; 

Denver; and Los Angeles, plus the VA’s central office compliment of EAOs. The 

VA maintains contracts for news monitoring clipping services, and videotape and 

photo duplication services at the central office. Three Regional Public Affairs 

Offices have news clipping service contracts.

Public Affairs will follow the DHS lead in communicating the incident response 

message as well as supporting HHS regarding health and medical services. At the 

incident site(s), VA’s Public Affairs Officers will assist in communicating 

appropriate medical and emergency response messages in coordination with local 

representatives of DHS, HHS, and local, state, tribal, territorial, and insular area 

emergency response authorities whenever possible.

EPA The EPA Headquarters Public Affairs staff consists of media relations; 

communications including Web posting on the EPA homepage; video and still 

photography, and public liaisons. There are Public Affairs Offices located in each

of the 10 EPA Regional Offices. 

GSA  GSA provides emergency relief supplies, facility space, office equipment; office 

supplies, telecommunications support; transportation services, and contracting 

services through a centralized acquisition channel.

 GSA provides support for requirements not specifically identified in other ESFs, 

including excess and surplus property disposal.

 GSA maintains the following Web sites:

 http://www.usa.gov: The official Web portal of the U.S. Government and the 

agreed to site where relevant incident content is posted. All Federal Web 

sites are mandated to link to http://www.usa.gov, which lends authority to its 

content and improves its findability in search queries.

 GobiernoUSA.gov: The Spanish-language sister site of http://www.usa.gov.

GobiernoUSA.gov follows the same mandate to provide official government 

information to people with LEP.

 National Contact Center: Serves as an information and referral service for the 

general public who seek information on a wide range of government 

programs, including those administered by the Executive, Legislative, and 

Judicial branches. 1-800-FED-INFO (1-800-333-4636)

NRC  In the event of a nuclear or radiological emergency involving an NRC-licensed 

nuclear facility or materials, the NRC would activate and fully staff its EOC at its 

headquarters and/or regions, including public affairs, to issue press

announcements, and operate a news center for briefings, as needed. Briefings 

would be webcast live and archived for future viewings. 

 Regional teams with Public Affairs staff would be deployed from one of four 

regions to the site of the incident where they would support a pre-established 

joint information/news center provided by the facility operator. This facility 

accommodates Public Affairs staff of the facility operator, NRC, FEMA, the 

affected state and counties, and, in the event of a terrorist attack, act of 

sabotage, or other criminal act, the FBI. Members of the media would be 

briefed periodically at this facility on the status of the facility and the response.
Response Federal Interagency Operational Plan 

C.1-13

Department, 

Agency, or 

Function 

Responsibility 

U.S. Postal 

Service

The U.S. Postal Service has assisted in the past with the distribution of 

information following disaster incidents.

American Red 

Cross

 The American Red Cross Communications Department will work in cooperation 

with DHS to coordinate and share public messaging following an incident.

 The American Red Cross takes the lead in crafting and disseminating 

messaging that relates to specific relief activities conducted by the American 

Red Cross including mass care sheltering, feeding, bulk distribution of supplies, 

recovery assistance, fundraising and disaster welfare inquires.

 The American Red Cross coordinates public messaging related to 

preparedness, recovery assistance, protective measures, and health and safety 

with other lead agencies.

 The American Red Cross Web site, http://www.redcross.org, acts as the 

primary information source for the public before and after an incident. The Web 

site features:

 Preparedness, safety and recovery information for a variety of disaster types.

 Shelter Map with a live feed from the National Shelter System displaying 

locations of all open American Red Cross shelters.

 Safe & Well tool including registry for disaster survivors and search 

functionality.

 Incident-specific information about American Red Cross services and how 

the public can help.

 The American Red Cross also has a series of apps available for iPhone and 

Droid users including a First Aid app with disaster preparedness tips, hazard 

specific apps, and a Shelter View app linking to real-time shelter locations 

pulled from National Shelter System.

 The American Red Cross Digital Operations Center staff also monitors the 

social media space to collect situational awareness information and provide 

preparedness, response and recovery information to social media users.

 The American Red Cross maintains a team of trained, national media 

spokespersons that are deployed on high-media visibility incidents where the 

American Red Cross is providing services.

Public Information and Warning Tasks 

Mission Objectives 

 PI-MO-1: Coordinate the development and delivery of emergency services and public messaging 

with affected jurisdictions, including the private sector and NGOs. (Supports PI-Critical Task-1, 

PI-Critical Task-2) 

 PI-MO-2: Monitor, analyze, and validate incoming information. (Supports PI-Critical Task-2) 

Phase 1a—Normal Operations 

End State: Federal planning, training, and outreach activities have occurred in the absence of a 

specific threat. (Supports PI-MO-2)
Response Federal Interagency Operational Plan 

C.1-14

 Tasks by Phase, by ESF 

 ESF #5 

 Produce pre-scripted informational messages and informational materials for media use 

to prepare the public for survival during an emergency or disaster. 

 Maintain and update FEMA’s Ready.gov and GobiernoUSA.gov (Spanish) Web sites.

 Establish and maintain a comprehensive, multi-directional, dynamic information-sharing 

network, through the DHS Office of Infrastructure Protection in coordination with DHS 

Office of Intelligence and Analysis, to provide timely and actionable threat information, 

assessments, and warnings to public and private sector security partners including critical 

infrastructure owners and operators. 

 Coordinate pre-incident communications planning at the local, state, tribal, territorial, and 

insular area levels. 

 ESF #8 

 Provide pre-incident or onset information on Public Health, Healthcare, and Emergency 

Medical Services’ needs (e.g., advice about vaccinations for influenza and pneumonia 

and relevant medical countermeasures). 

 Maintain and update HHS Web sites (e.g., CDC Public Health Information Network). 

 ESF #12 

 Provide a point of contact to coordinate with ESF #15 through the DOE Public Affairs 

office. 

 Draft and disseminate media informational materials (e.g., press releases, fact sheets, 

statements, responses to questions and interview requests), in coordination with the DOE 

Public Affairs Office. 

 Provide informational materials developed by DOE sites or other DOE response locations 

as appropriate, in coordination with the DOE Public Affairs Office. 

 ESF #15 

 Establish relationships and information-sharing with ESF #15 partners and external 

stakeholders. 

 Develop strategic communications plans to coordinate messaging with the White House. 

 Provide key information to the public on risks, preparatory, and mitigation actions. 

Phase 1b—Elevated Threat 

End State: Pre-scripted messaging has been prepared for release. (Supports PI-MO-1) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Pre-scripted messaging is being adjusted, as required, and prepared for release. (Supports 

PI-MO-1) 
Response Federal Interagency Operational Plan 

C.1-15

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident. 

Phase 2a—Immediate Response 

End State: Based on preliminary incident assessments and information analysis, public messaging 

has been coordinated across local, state, tribal, territorial, insular area, and Federal jurisdictions. 

Initial public messages have been broadcast to applicable areas using available mechanisms. 

(Supports PI-MO-1, PI-MO-2) 

 Tasks by Phase, by ESF 

 ESF #1 

 Provide informational media releases through EA relative to the safety and accessibility 

of roads, bridges, and other transportation routes to responders and to the general public. 

 Provide Notices to Airmen for aeronautical advisories and Notices to Mariners for 

maritime advisories. 

 ESF #2 

 Coordinate public information and outreach with owners and operators of critical 

communications and cyber infrastructure and Federal agencies that have authorities or 

equities in protecting the communications infrastructure through the DHS Office of 

Cybersecurity and Communications (CS&C), consistent with national policy and in 

coordination with relevant departments and agencies. 

 Monitor communications systems in the affected area for situational awareness and 

provide alternative communications. 

 ESF #5 

 Coordinate staffing resources, training, and operational and tactical support to the 

Assistant EAO for the Private Sector and ESF #15 private sector operations located in the 

NRCC, the RRCCs and JFOs through the FEMA Private Sector Division. 

 Conduct communication and coordination between the U.S. Government and other 

nations regarding the response to a domestic crisis through DOS. 

 ESF #6 

 Provide information to survivors on the location of shelter facilities and distribution 

points for food, water, and other human needs materials. 

 Initiate increased Red Cross Safe and Well Web site activities for the Safe and Well 

Linking Program. 

 ESF #8 

 Coordinate Public Health, Healthcare, and Emergency Medical Services messages across 

the Federal Government to ensure accuracy and consistency. 

 Coordinate communications activities with local, state, tribal, territorial, and insular area 

communications staff, including regional or local communications centers as appropriate, 

and amongst HHS and CDC public affairs personnel. 
Response Federal Interagency Operational Plan 

C.1-16

 ESF #10 

 Coordinate the distribution of public information on oil/hazardous materials incidents 

with ESF #15. 

 ESF #11 

 Provide updates related to required environmental compliance activities, in coordination 

and cooperation with FEMA/EA and FEMA/Office of Environmental Planning and 

Historic Preservation. 

 Provide updates on the progress toward addressing plant and animal disease situations in 

close coordination with FEMA. 

 Provide guidance to protect and respond to damaged natural and cultural resources and 

historic properties, in coordination and cooperation with FEMA/EA, FEMA/Office of 

Environmental Planning and Historic Preservation, and Regional Environmental Officers. 

 Coordinates with ESF#6 and local, state, and tribal governments and NGOs to address 

supplemental nutrition assistance needs, including the procurement and delivery of infant 

formula and baby food to supplement FEMA’s infant/toddler kits. 

 ESF #12 

 Provide updates on the status of essential energy resources through communication with 

Federal senior leadership and to the public via situation reports through DOE, in 

coordination with private sector energy owners and operators. 

 ESF #15 

 Activate the National JIC to coordinate all response-related press and media affairs. 

 Establish a JIC and the National Public Health Radio Network to collaborate with the 

Emergency Communication System to provide and coordinate timely media or public 

information; assess and identify emergency risk communication needs across all media 

platforms; develop, translate, and disseminate key public health messages. 

 Initiate the NICCL, SICCL, and PICCL as identified by ESF #15 leadership for 

interagency, state, and private sector communications coordination. 

 Coordinate the first release of information to the public and establish social media 

messaging and media monitoring within the first hour of the incident. 

 Appoint an ESF #15 EAO and deploy ESF #15 component staff to the affected area to 

support the response. Work with the state to identify external affairs gaps, shortfalls, and 

staffing needs. 

 Develop, coordinate, and disseminate unified messaging to external stakeholders on key 

lifesaving and life-sustaining information. Stakeholders include: the affected and nonaffected public; private sector business partners; members of Congress; the media; and 

local, state, tribal, territorial, and insular area government partners. 

 Coordinate with other ESFs and local, state, tribal, territorial, insular area, and Federal 

governments and private sector partners on critical, actionable public information, 

situational updates and methods to reach the whole community. 

 Ensure all messaging is accessible to the whole community, including individuals with 

LEP. 
Response Federal Interagency Operational Plan 

C.1-17

 Respond to rumors and inaccurate information to minimize concern and social disruption. 

Phase 2b—Deployment 

End State: Based on more comprehensive situational assessments, public messaging has been refined 

to meet the immediate needs of responders and the general public. (Supports PI-MO-1, PI-MO-2) 

 Tasks by Phase, by ESF 

 All 

 Maintain coordination with FEMA/EA to provide timely and accurate information for the 

safety and security of responders and survivors within the impacted area and information 

to the general public. 

 ESF #5 

 Activate ESF #15 at the national and regional levels to provide coordination and 

technical assistance. 

 Coordinate the deployment of Infrastructure Liaisons, through DHS Office of 

Infrastructure Protection, to JFOs to implement critical infrastructure support activities 

including coordination with ESFs, local, state, tribal, territorial, insular area, and Federal 

entities and critical infrastructure owners and operators. 

 Assess and revise local emergency public information activities regarding survivor 

decontamination. 

 Provide information for the development of credible, culturally and linguistically 

appropriate, and accessible messages to inform ongoing emergency services and the 

public about protective measures and other life-sustaining actions. 

 Disseminate public messages informing the population to be aware of the need to 

extremely limit communications and allow responders to fully utilize communication 

pathways. 

 ESF #8 

 Provide an initial HHS-coordinated public service announcement and coordinate and 

issue follow-on announcements at frequent and regular intervals. 

 Coordinate public information announcements with the American Association of Blood 

Banks (AABB) regarding the adequacy and safety of the Nation’s blood supply.

 Support a JIC in the release of general medical and public health response information to 

the public. 

 ESF #15 

 Coordinate national-level messages with local, state, tribal, territorial, insular area, and 

Federal governments, outlining Federal support and capabilities being provided to local, 

state, tribal, territorial, and insular area response operations, and establish the National 

JIC, through DHS Public Affairs. 

 Ensure that sufficient Federal assets are deployed to the field during incidents requiring a 

coordinated Federal response to provide accurate, coordinated, timely, culturally and 

linguistically appropriate, and accessible information to affected audiences, including 

governments, media, the private sector, and the local populace, through FEMA/EA. 
Response Federal Interagency Operational Plan 

C.1-18

 Conduct initial demographic assessments to support field operations and outreach, 

including information on populations with disabilities or LEP. 

 Conduct communications planning through an IAP with incident-specific guidance and 

objectives. 

 Provide critical information to external stakeholders, including: lifesaving and life-safety 

information for impacted populations; risk information and available resources to reduce 

loss of life or property. 

 Work with external stakeholders to reach diverse audiences and widely disseminate 

information, ensuring information is accessible to the whole community including 

individuals from diverse racial and ethnic groups and individuals with LEP. 

 Provide direct support to the FCO and other members of the UCG. 

 Coordinate closely with the affected state(s) to identify community leaders and 

neighborhood advocacy groups to assist in the rapid dissemination of information, 

identify unmet needs, establish an ongoing dialogue and information exchange, and 

facilitate collaborative local, state, tribal, territorial, insular area, and Federal planning 

and mutual support for disaster response and recovery. 

 Coordinate with Congressional offices on situational updates, the assistance process, and 

constituent issues to ensure consistent two-way communications. 

 Inform local, state, tribal, territorial, and insular area elected and appointed officials on 

Federal available assistance programs to increase the impact of committed Federal 

resources. 

 Disseminate information with the assistance of state municipal leagues, county 

associations, tribal governments, and territorial governments. 

 Issue task orders against Broadcast Operations contract for satellite truck/video crew 

support and against Translation Services contract for multilingual support, as required. 

 Support Preliminary Damage Assessment teams with EA staff. 

 Coordinate and conduct press conferences (headquarters, state EOC, and/or JFO). 

 Coordinate media access to the impacted area. 

 Initiate AABB Task Force coordinated public information announcement regarding the 

adequacy and safety of the Nation’s blood supply.

Phase 2c—Sustained Response 

End State: Public messaging has been refined to facilitate the transition to recovery. (Supports PIMO-1, PI-MO-2) 

 Tasks by Phase, by ESF 

 ESF #15 

 Provide incident-related information through DHS/OPA to the media and other sources in 

accessible formats and multiple languages to individuals, households, businesses, and 

industries directly or indirectly affected by the incident, ensuring all messaging is 

accessible to the whole community. 
Response Federal Interagency Operational Plan 

C.1-19

 Monitor news coverage to ensure that accurate information is disseminated through 

DHS/OPA. 

 Disseminate authorized incident information from DHS/OPA through new media 

(official Web sites, social networking platforms) to ensure wide delivery of lifesaving 

information. 

 Maximize the use of video and digital imagery to communicate during incidents through 

DHS/OPA. 

 Handle appropriate special projects such as news conferences and press operations for 

incident area tours by government officials and other dignitaries through DHS/OPA. 

 Provide basic services, such as communications and supplies, to assist news media in 

disseminating information to the public through DHS/OPA. 

 Employ risk communications to regularly update the public on the impacts of the 

incident. 

 Disseminate messages to the public on available disaster assistance programs, application 

processes, and strategies to reduce future risks—ensuring information is accessible to the 

whole community. 

 Provide critical information to evacuees returning home and strategies to rebuild safer 

and stronger communities. 

 Arrange for incident site visits for members of Congress, senior officials, and others as 

identified. 

Phase 3a—Short Term Recovery 

End State: Public messaging content and dissemination mechanisms have begun to transition to preincident levels. (Supports PI-MO-1, PI-MO-2) 

 Tasks by Phase, by ESF 

 All 

 Continue to provide information to facilitate the delivery of information related to the 

transition from response messages to responders and survivors to instructional messages 

related to the transition to recovery. 

 ESF #15 

 Inform local, state, tribal, territorial, and insular area elected and appointed officials on 

response efforts, protocols, and recovery programs. 

 Provide public messaging to support: 

‒ Assessment of the extent and severity of damages to homes and other property 

‒ Restoration of services generally available in communities (e.g., water, food, and 

medical assistance) 

‒ Repair of damaged homes and property 

‒ Professional counseling 

‒ Education on proper rebuilding practices. 
Response Federal Interagency Operational Plan 

C.1-20

 Support the dissemination of information about disaster assistance available to support 

rebuilding efforts. 

Administration and Support 

Each Federal department and agency will continue to maintain its roles and responsibilities under 

Federal laws and regulations. Each department and agency will adhere to individual activation, 

notification, deployment, and deactivation procedures. 

Table C.1-2: Public Information and Warning Core Capability Waivers 

Type Description

FCC Waiver Issue notices and orders providing telecommunications carriers, wireless, and 

satellite operators in disaster-affected areas more time to file their regular reports 

and providing assistance in restoring operations (e.g., granting waivers to allow 

carriers and their numbering administrators to “port”/redirect telephone numbers 

geographically outside of their rate centers).
Response Federal Interagency Operational Plan 

C.2-1 

Appendix 2 to Annex C: Public Health, Healthcare, and 

Emergency Medical Services

Purpose 

The purpose of this appendix is to describe the delivery of the Public Health, Healthcare, and 

Emergency Medical Services core capability. 

The Public Health, Healthcare, and Emergency Medical Services core capability provides lifesaving 

medical treatment via emergency medical services and related operations to avoid additional disease 

and injury by providing targeted Public Health, Healthcare, and Emergency Medical Services support 

and products to all people in need within the affected area. 

The Public Health, Healthcare, and Emergency Medical Services (HM) critical tasks are as follows: 

 HM-Critical Task-1. Deliver medical countermeasures to exposed populations. 

 HM-Critical Task-2. Complete triage and initial stabilization of casualties and begin definitive 

care for those likely to survive their injuries. 

 HM-Critical Task-3. Return medical surge resources to pre-incident levels, complete health 

assessments, and identify recovery processes. 

Situation 

During a disaster, response teams provide acute medical care to survivors and responders. ESF #8 

provides health professionals, medical equipment, and supplies for lifesaving medical treatment to 

injured patients and to prevent the spread of disease in the impact area. Disaster medical treatment 

occurring at any time during the response timeline focuses on providing stabilizing care with the 

goals of reducing morbidity and mortality, promoting patient independence, and reducing the 

demands upon the healthcare systems in the impacted area. The scope of these services may include 

acute medical care for new conditions, which may or may not be directly related to the disaster. It 

also includes the delivery of urgent stabilizing care to those who are dependent upon the delivery of 

healthcare services on an ongoing basis, as these patients have the potential to deteriorate quickly 

during the initial response phases of a disaster. 

During a catastrophic incident, the need for medical support may exceed response capabilities. 

Transportation resources used to deliver medical supplies and personnel may be limited resulting in a 

delay in medical care delivery. Damaged or inaccessible healthcare infrastructure can delay the 

provision of life saving and sustaining services. In addition to acute care survivors, individuals with 

chronic medical needs may deteriorate more rapidly if their chronic medical conditions are not 

properly managed. This could result in the worsening of the health and medical condition of the 

affected disaster population and overburdening of the healthcare system. If a national event meets the 

International Health Regulations’ (2005) definition of a Public Health Emergency of International 

Concern as assessed by HHS, HHS will notify the World Health Organization of the event. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. Assumptions 

specific to this core capability include: 
Response Federal Interagency Operational Plan 

C.2-2 

 States will have pre-planned through EMAC or other mechanisms to ensure provider license 

reciprocity to allow interstate-responding medical personnel to provide care to those in the 

impacted area. 

Mission 

Federal interagency partners will be initiating and providing lifesaving medical treatment by 

completing triage and initial stabilization of casualties and beginning definitive care for those likely 

to survive their injuries following an incident, delivering medical countermeasures, completing 

health assessments, identifying recovery processes, and returning medical surge resources to preincident levels. 

Execution 

Concept of Operations 

Phase 1 

The Secretary of Health and Human Services, through the Assistant Secretary for Preparedness and 

Response reviews readiness and deployment status of personnel and resources to support state and 

local response operations. Federal health officials will coordinate directly with state Health 

Departments of the impacted states to determine resource needs. HHS, in coordination with FEMA, 

state, and local officials, will identify potential locations for Federal Medical Stations and Medical 

Staging Areas. HHS will provide liaisons to EOCs and assessment teams to the extent that resources 

permit. 

HHS enhances the preparedness and resiliency of communities through public health and medical 

preparedness grants, mitigation efforts, readiness guidance, and support in planning, training, and 

exercises. Additionally, PSMAs, IAAs, and contract vehicles (with Federal partners, local, state, 

tribal, territorial, and insular area agencies, national Voluntary Organizations Active in Disaster and 

private sector in the likely impact areas) are developed to enable rapid implementation and execution. 

In coordination with local, state, tribal, territorial, and insular area officials, FEMA/Logistics and 

HHS/Logistics pre-identify buildings of opportunity for Federal Medical Stations and locations for 

medical staging. HHS coordinates with the FEMA-led Interagency Coordinating Council on 

Emergency Preparedness and Individuals with Disabilities to develop pre-scripted public and 

responder messaging, ensuring cultural and linguistic appropriateness, to make individuals with 

medical, access, and functional needs aware of which items they should bring with them during an 

evacuation and any other appropriate messages. HHS develops pre-scripted public messages that are 

culturally and linguistically appropriate. Finally, HHS coordinates with states to integrate Federal 

medical assets with civilian volunteers a state or locality identifies through specialist databases, e.g., 

Emergency System for Advance Registration of Volunteer Healthcare Professionals and Medical 

Reserve Corps. 

Phase 2 

Once a major disaster or emergency declaration has been made under the Stafford Act, and/or a 

determination has been made that an incident is a public health emergency (declared by the 

Secretary, Department of Health and Human Services), and a mission assignment or other funding 

agreement is issued (e.g., pursuant to the Economy Act), ESF #8 partners commence providing 24/7 

support where needed to save lives, minimize adverse health and medical effects and stabilize the 

public health, healthcare, and Emergency Medical Services infrastructures. 
Response Federal Interagency Operational Plan 

C.2-3 

Once a determination has been made that a need or potential need exists that exceeds the capabilities 

of the local, state, tribal, territorial, or insular area government, HHS will deploy resources in 

anticipation of a Stafford Act declaration or under its independent authority where needed to save 

lives, minimize adverse health and medical effects and stabilize the public health, healthcare, and 

Emergency Medical Services infrastructures. HHS has the following resources that can be integrated 

into local/state/tribal/territorial/insular area response operations: 

 Disaster Medical Assistance Teams (DMAT) from NDMS 

 Public Health Service Teams 

 Patient evacuation resources through the NDMS 

 Surge ambulances through the FEMA administered National Ambulance Contract 

 Medical equipment and personnel to establish Federal Medical Stations 

 Veterinary Support from the National Veterinary Response Team 

 Pharmaceuticals and medical supplies from the Strategic National Stockpile 

 Technical assistance on a variety of public health, healthcare, and Emergency Medical Services 

matters 

 Health situational awareness through the Secretary’s Operations Center that will help build a 

common operating picture. 

Depending on the disaster type, the primary focus is on providing medical surge capability, hospital 

decompression, or medical evacuation, which consists of caring for and evacuating critical patients 

out of the affected area to NDMS receiving hospitals and non-NDMS participating hospitals. The 

HHS-established Patient Movement Coordinating Group liaisons with DoD, VA, and DHS/FEMA; 

in coordination with the American Red Cross and local, state, tribal, territorial, and insular area 

agencies to move patients by air or by ground from locally operated points of 

embarkation/aeromedical marshaling points to medical facilities outside the anticipated impact area. 

Accessible transportation may be needed to move individuals with disabilities who need medical 

care. The National Ambulance Contract, which is activated by FEMA at the request of HHS, is used 

by the state to support patient movement and is based on validated state plan requirements for 

ambulance (e.g., ground, air, paratransit vehicles). 

HHS medical and veterinary strike teams may be tasked to support medical requirements related to 

FEMA Federal mass evacuation at reception processing, embarkation and debarkation sites, and 

Federal congregate shelters. Additionally, they may be called upon to support DoD Disaster Aeromedical Staging Facilities at the designated aerial points of embarkation. 

Local healthcare facility assessments, which includes a shelter-in-place assessment in the impact 

zone, are updated and provided through shared situational awareness products to determine capability 

to continue operations (power, water, debris) or whether rescue operations are required. 

Accurate Public Health, Healthcare, and Emergency Medical Services status assessments are 

necessary for the Emergency Management Group and ESF #8 Support Agencies to plan for and 

sustain Public Health, Healthcare, and Emergency Medical Services response operations; to 

anticipate the need for follow-on personnel, supplies, and equipment; and to provide other pertinent 

information, as required to facilitate the response. Patient movement resumes as required by the 

damage to the healthcare infrastructure in the impacted area. 
Response Federal Interagency Operational Plan 

C.2-4 

During sustained response and initial recovery operations, the Secretary’s Operations Center 

maintains comprehensive shared situational awareness of the national-level domestic operating 

picture, as well as the specific incident(s), in order for HHS to make informed operational 

employment and resource allocation decisions. 

Phase 3a 

As the need for full-time interagency coordination at the JFO ceases, the IRCT plans for selective 

release of Federal medical resources, demobilization, deactivation, and closeout in an effort to 

facilitate the transition from Public Health, Healthcare, and Emergency Medical Services to the 

Recovery Health and Social Services. Federal departments and agencies then work directly with their 

respective partners (e.g., grantees, loan applicants) from their program offices to administer and 

monitor individual recovery programs, support, and technical services. The IRCT is scaled down to a 

level that ensures continued visibility on the execution of longer-term mission assignments and to 

maintain shared situational awareness of ongoing response operations. The HHS-Emergency 

Management Group may scale down operations commensurate with field activities or the operational 

tempo of the NRCC. As response operations begin to diminish, Incident Commanders demobilize 

Federal agencies from their respective operations. 

Requirements for long-term, post-incident health surveillance or investigation are determined, and 

continued assistance to states regarding surveillance and monitoring efforts of disaster-related illness 

in the affected area may be necessary. Responsibility for managing these activities transitions back to 

the HHS Regional Office Staff. 

Coordinating Structure 

Many ESFs support the Public Health, Healthcare, and Emergency Medical Services core capability. 

The ESFs that perform tasks under this core capability are summarized in Figure C.2-1. Specific 

tasks conducted by these ESFs are identified in the Tasks by Phase, by ESF section below. 
Response Federal Interagency Operational Plan 

C.2-5 

Figure C.2-1: Coordination of ESF Support to Public Health, Healthcare, and Emergency Medical 

Services 

The vast majority of public health, healthcare, and Emergency Medical Services activities and 

services are provided by the private healthcare sector. ESF #8 augments the support provided by the 

private healthcare sector when requested by local, state, tribal, territorial or insular area governments. 

HHS is the Primary Agency for ESF #8 and provides planning and coordination for Federal public 

health, healthcare delivery, and emergency response systems to minimize and/or prevent health 

emergencies from occurring, detect and characterize a health incident, provide medical care and 

human services to those affected, reduce the public health and human service effects on the 

community, and enhance community resiliency to respond to a disaster. While local, state, tribal, 

territorial, and insular area officials retain primary responsibility for meeting public health, 

healthcare, and Emergency Medical Services’ needs, ESF #8 can deploy Public Health, Healthcare, 

and Emergency Medical Services assets to assist as needed. 

Coordinating the Response 

When an incident occurs, actions are taken to prepare for, respond to, and recover from Public 

Health, Healthcare, and Emergency Medical Services emergencies. The health security mission 

activities focuses on those activities that protect the health of the public through the provision of 

public health, medical, environmental health, and animal health measures. HHS assigns personnel 

(e.g., U.S. Public Health Service Commissioned Corps, NDMS, Federal Civil Service) to address 

public health, medical, behavioral health, and veterinary needs. During a public health emergency, 
Response Federal Interagency Operational Plan 

C.2-6 

HHS assumes operational control of Federal emergency Public Health, Healthcare, and Emergency 

Medical Services assets (except for members of the Armed Forces who remain under the authority 

and control of the Secretary of Defense) and prepares to deploy regional staff (e.g., IRCT) to provide 

initial ESF #8 support to the affected location. HHS assists local, state, tribal, territorial, and insular 

areas by conducting health surveillance to assess morbidity, mortality, and community needs related 

to an emergency and establishing a registry of potentially exposed individuals to conduct monitoring 

of the population for potential long-term health effects. In conjunction with Department or agency 

partners (USDA, DoD, FEMA, and the American Red Cross), HHS provides shared situational 

awareness of public health, medical, and behavioral health assistance and works to determine the 

appropriate response. In addition, HHS is the coordinating agency for activating Public Health, 

Healthcare, and Emergency Medical Services support along with patient movement requirements 

with other primary and supporting departments and agencies throughout an incident. 

When an emergency exceeds the scope of an impacted area’s hospital and/or healthcare resources, 

HHS, in coordination with DoD, VA, and DHS, activates the NDMS. This is a Federal interagency 

partnership that assists state and local authorities in dealing with the medical impacts of a major 

disaster. Upon activation, DoD provides NDMS support for the evacuation and medical management 

of patients. They also provide patient reception, tracking, and management of patients evacuated on 

DoD assets to nearby NDMS hospitals, VA hospitals, and DoD military treatment facilities that are 

available and can provide appropriate care. Through the National Ambulance Contract, FEMA 

provides ambulance and paratransit support to the states. 

Upon approval by the Secretary of Defense, DoD also assists HHS by deploying available medical, 

surgical, behavioral health, environmental health, and other healthcare providers and personnel for 

patient clearing, staging, management, and treatment. DoD healthcare providers can support civilian 

hospitals, HHS deployed teams and points of medical countermeasure distribution. Military medical 

and veterinary personnel assist with the protection of public health by providing food, water, medical 

support, food safety assistance and animal services. Joint Regional Medical Planners working out 

their Joint Regional Planning Office within FEMA regions work closely with DCOs, local, state, 

HHS, FEMA and other regional representatives, and provide planning and operational response 

support. DoD can provide a range of assistance to HHS through medical logistics, laboratory 

diagnostics and confirmation testing, biosurveillance, blood products, telemedicine, occupational 

health assistance, vector control, and medical materials. In addition, DoD deploys available medical 

teams and platforms (e.g., hospital ships, Expeditionary Medical Support, naval vessels with 

medical/surgical capability), when requested and approved by the Secretary of Defense. 

HHS coordinates with the American Red Cross which assists community health personnel (subject 

to staff availability) by providing mortality information to requesting agencies and by supporting 

NDMS evacuation through the provision of services for accompanying family members/caregivers in 

coordination with local, state, tribal, territorial, insular area, and Federal authorities. 

The American Red Cross provides behavioral health support services for family members of the nonsurvivors, injured, and others affected by the incident. The American Red Cross may provide 

personnel in temporary infirmaries, immunization clinics, morgues, hospitals, and nursing homes. 

Their assistance includes administrative support, logistical support, or health services support within 

clearly defined boundaries. At the request of HHS, the American Red Cross coordinates with the 

AABB Interorganizational Task Force on Domestic Disasters and Acts of Terrorism (AABB Task 

Force) to provide blood and services as needed through regional blood centers. 

Federal response agencies also work closely with the private sector (e.g., regulated industries, 

academic institutions, trade organizations, and advocacy groups), volunteer organizations, and local, 
Response Federal Interagency Operational Plan 

C.2-7 

state, tribal, territorial, and insular area agencies to coordinate ESF #8 response resources. ESF #8 

organizations recognize that leveraging resources from these organizations and individuals with 

shared interests allows ESF #8 to accomplish its mission in ways that are the least burdensome, most 

beneficial to the American public, and enhance the resiliency of healthcare systems to deliver 

coordinated and effective care during public health emergencies and mass casualty incidents. NGOs, 

including community-based organizations, are also an important partner in recruiting and supporting 

medical volunteers, and providing medical and counseling services to survivors and their families. 

During an emergency, HHS provides public health risk communication messages and advisories in 

conjunction with ESF #15 that relay relevant information on health hazards or other situations that 

could potentially threaten public health. This also includes the dissemination of public health 

information on protective actions related to exposure to health threats or environmental threats. 

ESF #2 provides the essential communication infrastructure that enables the ESF #8 communication 

capability for coordination and situational awareness. DHS maintains shared situational awareness 

through HSIN to maintain a common operating picture. 

Veterinary Medical Support 

The USDA’s Animal and Plant Health Inspection Service (APHIS) ensures an integrated response to 

disasters or emergencies by providing technical assistance regarding the safety and well-being of 

animals, which may include household pets and service and assistance animals. Depending on the 

incident type, APHIS will coordinate with HHS, EPA, DoD, USACE, and/or FEMA to provide 

technical advice regarding disposal of animal carcasses (any or all of which may contain potentially 

pathogenic organisms in their intestinal tracts such as Salmonella, E. coli, etc.) to protect animal 

health and reduce the potential for public health and/or environmental health concerns resulting from 

an incident. APHIS also responds to animal and agricultural health emergencies under USDA 

statutory authority, coordinates with ESF #8 on management of zoonotic disease, coordinates with 

ESF #8 to ensure that animal health issues (including both disease management and medical 

management) are supported, and collaborates with HHS and the Department of the Interior (DOI) to 

deliver effective “one health” response that integrates human, animal, and environmental health. 

During emergencies related to potential infectious contamination, the USDA responds in an effort to 

control and eradicate any outbreak of a highly contagious or economically devastating animal disease 

or plant pest. HHS coordinates with DHS to provide enforcement of international quarantines 

through DOS, USCG, Customs and Border Protection (CBP), Immigration and Customs 

Enforcement (ICE), and the Office of Health Affairs’ Food, Agriculture, and Veterinary Defense 

office. 

Public Health, Healthcare, and Emergency Medical Services Tasks 

Mission Objectives 

 HM-MO-1: Coordinate planning and operational analysis among governmental, 

nongovernmental, and private sector services and other mission areas to prepare for the delivery 

of medical care and countermeasures. (Supports HM-Critical Task-1) 

 HM-MO-2: Analyze, prioritize, adjudicate, allocate, and deliver public health, behavioral health, 

and medical resources to support local, state, tribal, territorial, and insular area jurisdictions. 

(Supports HM-Critical Task-1) 

 HM-MO-3: Coordinate with the affected jurisdiction(s) to provide medical care and 

countermeasures. (Supports HM-Critical Task-1, HM-Critical Task-2) 
Response Federal Interagency Operational Plan 

C.2-8 

 HM-MO-4: Reduce medical surge support and return resources to pre-incident levels. (Supports 

HM-Critical Task-3) 

Phase 1a—Normal Operations 

End State: Federal Public Health, Healthcare, and Emergency Medical Services operations plans 

have been tested and are readily available. (Supports HM-MO-1) 

 Tasks by Phase, by ESF 

 ESF #6 

 Communicate plans, requirements, and strategies to core capability service providers. 

 ESF #7 

 Order and verify inventory levels of personal protective equipment (PPE) and other 

mission essential materials and supplies for response, recovery, and mitigation efforts. 

 ESF #8 

 Identify, create, develop, manufacture, and procure critical medical countermeasures; 

develop logistical and operational plans for optimized use of medical countermeasures at 

all levels of response. 

 Promote the National Health Security Strategy objectives to enhance the preparedness 

and resiliency of communities through preparedness grants, mitigation efforts, readiness 

guidance, and support in planning, training, and exercises. 

 Review and update key personnel rosters with accurate contact information. 

 Ensure communication systems between local, state, tribal, territorial, insular area and 

Federal departments are tested and operable. 

 Maintain deployment ready status of ESF #8 response personnel. 

 Ensure responder health protection guidance is current and readily available. 

Phase 1b—Elevated Threat 

End State: Trained medical personnel and equipment are inventoried for potential deployment. 

(Supports HM-MO-1) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Medical caches are ready for deployment and information exchanges with local, state, 

tribal, territorial, and insular area officials have occurred. (Supports HM-MO-1) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 
Response Federal Interagency Operational Plan 

C.2-9 

Phase 2a—Immediate Response 

End State: Medical personnel have been alerted and initial information about the incident has been 

collected for preliminary operational analysis. (Supports HM-MO-1) 

 Tasks by Phase, by ESF 

 ESF #4 

 Provide appropriate personnel, equipment, and supplies, which are used primarily for 

communications and aircraft for deployed Federal Public Health, Healthcare, and 

Emergency Medical Services teams. 

 ESF #5 

 Begin to prepare PSMAs for processing. 

 Activate ESF #8 at the national and regional level to provide coordination and technical 

assistance. 

 ESF #6 

 Acquire and manage resources, supplies, and services from core capability service 

providers via contracts, mission assignments, IAAs, and donations. 

 ESF #7 

 Coordinate logistical support for medical teams to support field operations. 

 Coordinate all air, ground, and maritime movement of Federal resources. 

 Initiate the National Ambulance Contract for ground transportation. 

 Notify, activate, and/or deploy Execution Schedule Resources for NDMS teams. 

 ESF #8 

 Provide pre-hospital triage and initial stabilization. After establishment of the JFO, 

requests will go through the FCO or Operations Section Chief. The Federal health official 

coordinates the response and identifies the resources that will be provided. 

 Gather, assess, prioritize, coordinate, and communicate Public Health, Healthcare, and 

Emergency Medical Services’ requirements of survivors and their household pets and 

service and assistance animals in congregate facilities to core capability providers. 

 Gather, assess, prioritize, and communicate relevant Public Health, Healthcare, and 

Emergency Medical Services’ needs information to survivors in facilities where mass 

care services are provided through culturally and linguistically appropriate and accessible 

messaging. 

 Coordinate with state and FEMA regional officials in affected areas in order to determine 

the need for ESF #8 support and coordinate and prioritize requests for assistance. 

 Designate a Federal health official to serve as the senior HHS official in the JFO. 

 Maintain visibility of state evacuations and healthcare facility shelter-in-place and 

evacuation requirements. 
Response Federal Interagency Operational Plan 

C.2-10

 Receive initial mission assignments to activate ESF #8 operations and staff the ESF #8 

function at NRCC and RRCCs; potentially receive mission assignments to mobilize and 

stage resources in preparation for response. 

 Activate the NDMS to allow for deployment of personnel and provision of logistics 

preparations. 

 Issue an Execute Order authorizing the activation of NDMS teams, verify rosters, prepare 

teams for travel, stage teams/personnel, and deploy ESF #8 resources. 

 Activate the patient movement portion of the NDMS. 

 Position response resources to support patient movement requirements, if requested, in 

accordance with published activation timelines. 

 Determine local, state, tribal, territorial, and insular area patient transportation 

capabilities. 

 Request activation of the National Ambulance Contract. 

 Coordinate with FEMA for National Ambulance Contract support for state-level 

assistance. 

 Increase staffing, as appropriate, including representatives from ESF #8 partner agencies 

and HHS representatives for various Federal Coordination Centers (e.g., NRCC, NOC). 

 Establish, activate, and/or deploy the HHS IRCT to support pending tactical-level 

operations. 

 Provide public health risk communication messages and advisories, ensuring information 

is accessible to the whole community including individuals with LEP and are crafted with 

attention to psychological and behavioral considerations to reduce stress and promote 

effective decision making. 

 Designate HHS leadership personnel for the Initial Operating Center and JFO. 

 Activate and coordinate deployment of Federal medical and public health teams, 

including: DoD, VA, HHS, and CDC resources. 

 Activate NDMS to allow for patient movement, FCC reception, and definitive care in 

NDMS hospitals. 

 Coordinate transportation support with DoD and other Federal agencies. 

 Verify readiness status and prepare equipment sets/caches/kits for transport (including air 

transport) and activate associated logistic personnel or teams. 

 Identify select on-call teams and place in a heightened state of awareness. 

 Establish and maintain required communications and coordination links with ESF #8 

partners and other Federal department and agency representatives. 

 Provide HHS technical expertise in the coordination of response with international 

partners, countries, and multilateral organizations. 

 Ascertain whether HHS will be supporting any activated IMATs. 

 Issue a Warning Order to HHS Division, HHS response teams, and supporting 

departments and agencies notifying them of potential deployment, providing situational 
Response Federal Interagency Operational Plan 

C.2-11

assessment information, and directing them to assume a heightened state of alert in 

preparation for possible ESF #8 deployment. 

 Coordinate with local, state, tribal, territorial, regional, and Federal resources to conduct 

a rapid needs assessment of the affected area. 

 Activate and coordinate deployment of Federal medical and public health teams, 

including DoD, VA, and HHS resources. 

 Support local medical lifesaving and life-sustaining operations (e.g., hospitals, medical 

facilities, Emergency Medical Services, alternate care sites). 

 Provide status reports on team deployments and operations in the affected area. 

 Coordinate with ESF #9 to move the rescued and injured to medical facilities or alternate 

care sites. 

 Coordinate with ESF #6 to ensure medical requirements and support are met related to 

mass evacuations and shelters. 

 Coordinate with local, county, state agencies and determine their need for fatality 

management assistance. 

 Deploy medical caches and determine the appropriate placement of medical support 

resources. 

 Coordinate with local, state, tribal, territorial, insular area, and private sector hospitals in 

the impact zone to gain shared situational awareness regarding health and medical 

conditions. 

 Coordinate medical transportation support (including patient evacuation) with other 

Federal departments and agencies. 

 Initiate coordination of the response for communicable disease control and environmental 

public health hazards. 

 Execute a Public Health Emergency declaration as necessary. 

 Issue waivers or modifications under Section 1135 of the Social Security Act, as 

necessary when the Secretary of Health and Human Services has declared a public health 

emergency and the President has declared a disaster or emergency, to ensure that 

sufficient healthcare items and services are available to meet the needs of individuals 

enrolled in Medicare, Medicaid, and the Children’s Health Insurance Program and to 

allow healthcare providers providing medical services but unable to comply with certain 

program requirements to be paid for their good-faith services and be exempt from 

sanctions for noncompliance. 

 Activate the AABB Task Force to assess current blood supply levels throughout the 

country. 

 Coordinate with the AABB Task Force, through the American Red Cross, to provide 

blood and services as needed through regional blood centers. 

 Begin daily reporting requirements for Hospital Available Beds for Emergencies and 

Disasters. 

 Initiate deployment actions for Epidemic Intelligence Service officers and other staff to 

support epidemiological investigations. 
Response Federal Interagency Operational Plan 

C.2-12

 Initiate deployment actions for food safety inspectors, as needed. 

 Ascertain extent of contaminated survivor access to medical treatment facilities and 

impact on operational status. 

 Initiate deployment actions for the on-call response teams and roster of the U.S. Public 

Health Service Commissioned Corps; depending on the magnitude of the disaster, 

recommend activating all U.S. Public Health Service Commissioned Corps deployable 

assets as authorized by the Secretary or delegated authorities. 

 Identify national laboratories that could be used to support diagnostic activity for agent of 

concern. 

 Initiate deployment actions for the DMAT and DMAT equipment caches. 

 Initiate deployment actions for the National Veterinary Response Teams. 

 Activate the HHS Disaster Behavioral Health Concept of Operations to facilitate 

coordination of Federal efforts concerning behavioral health. 

 Convene the ESF 8 Patient Movement Coordination Cell to determine with 

APOES/APODS and FCCs will be used for patient evacuation and reception. 

 Activate the Rapid Response Victim Registry. 

 Issue Patient Movement Enabler and Federal Coordinating Center MA to DoD to allow 

for prestaging or aeromedical evacuation, critical care teams, and Federal Coordinating 

Centers. 

 Issue Patient Movement Mission Assignment to DoD to begin patient evacuation, 

reception and movement to NDMS hospitals for inpatient care. 

 Activate the Emergency Prescription Assistance Program capability to administer and 

provide a national network of pharmacies and sufficient personnel to address evacuee 

emergency prescription requirements under a mission assignment. 

 ESF #11 

 Coordinate with ESF #8 on management of zoonotic disease. 

 Coordinate with ESF #8 to ensure that animal health issues (including both disease 

management and medical management) are supported. 

 Collaborate with HHS, DOI (U.S. Fish and Wildlife Service and U.S. Geological Survey 

[USGS], in particular), USDA, EPA, and DHS to deliver effective “one health” response 

that integrates human, animal, and environmental health. 

 ESF 15: 

 Coordinate with ESF #8 on disseminating public health information to survivors. Ensure 

that messaging is accessible to the whole community. Identify spokespersons for ESF #8 

operations. 

Phase 2b—Deployment 

End State: Based on information analysis, jurisdictional needs, and operational priorities, resources 

and personnel have been deployed to provide triage and initial stabilization of casualties. (Supports 

HM-MO-2, HM-MO-3) 
Response Federal Interagency Operational Plan 

C.2-13

 Tasks by Phase, by ESF 

 ESF #5 

 Provide and coordinate information with Federal department and agency partners to 

maintain shared situational awareness. 

 ESF #6 

 Coordinate with core capability service providers to ensure that ESF #6 service delivery 

locations are appropriately provisioned and operated in a safe, sanitary, secure, and 

timely manner. 

 ESF #7 

 Activate the National Ambulance Contract. 

 ESF #8 

 Determine appropriate medical countermeasures and non-pharmaceutical interventions 

and medical countermeasures distribution strategies. 

 As required, determine appropriate vaccines for development and distribution. 

 Execute appropriate vector control strategies to limit the risk of disease transmission. 

 Support individuals with disabilities with acute medical needs to obtain medical 

treatment and reconnection to durable medical equipment, medications, and consumable 

medical supplies.

 Assess short-term medical treatment needs of incident-area population and evacuees. 

 Deploy medical caches and determine the appropriate placement of medical support 

resources. 

 Coordinate with local, state, tribal, territorial, insular area, and private sector hospitals 

(through teleconference or other established communication system) to gain situational 

awareness regarding health and medical conditions; key elements include: 

‒ Assess damage to hospitals and other key ESF #8 critical infrastructure 

‒ Assess status of healthcare facilities and emergency medical services 

‒ Develop status reports on casualties and building damage 

‒ Perform bed poll in all affected areas. 

 Deliver to the requesting State medical countermeasures, equipment, and supplies from 

the Strategic National Stockpile. 

 Evacuate and track acute medical needs patients from medical facilities and nursing 

homes. 

 Initiate, coordinate, and implement patient evacuation, including: 

‒ Determine local, state, tribal, territorial, and insular area patient transportation 

capabilities including availability of accessible transportation. 

‒ Activate NDMS. 

‒ Request National Ambulance Contract for ground transportation. 
Response Federal Interagency Operational Plan 

C.2-14

‒ When mission assigned, DoD aeromedical evacuates patients from Aerial Ports of 

Embarkation to Aerial Ports of Debarkation where the patients are received by 

Federal Coordinating Centers and transferred to NDMS civilian hospitals for 

inpatient care. DoD regulates patients moved on DoD transportation assets. Patient 

tracking data collected by DoD will be provided to the state through HHS/ESF #8. 

‒ Activate Federal Coordinating Centers to receive regulated patients. 

 Coordinate with the state(s) to designate airports with sufficient movement on the ground 

to support patient evacuations. 

 Employ and maintain situational awareness of ESF #8 resources. 

 Coordinate with local, state, tribal, territorial, and NGO partners to determine changes in 

capabilities and anticipated shortfalls on public health, medical, and behavioral health 

needs. 

 Coordinate emergency first aid. 

 Coordinate emergency medical care with local, state, tribal, territorial, and insular area 

agencies at the staging areas and pickup points used in evacuations. 

 Integrate Federal ESF #8 assets with local, state, tribal, territorial, private sector, and 

EMAC deployed resources. 

 Coordinate response for communicable disease control and environmental public health 

hazards. 

 Provide public health technical assistance to state health departments in the surveillance 

and investigation of disease outbreaks, injury, and illness and provide support to address 

identified public health concerns. 

 Coordinate with behavioral health partners at the local, state, tribal, territorial, insular 

area, and Federal level to determine needs and identify appropriate services and 

resources. 

 Provide behavioral health technical assistance to State Mental Health Authorities and 

State Disaster Mental Health Coordinators, convene the Federal Disaster Behavioral 

Health Group to promote a common operating picture, assess the need for and facilitate 

the provision of Federal behavioral health assets. 

 Provide public health risk communication messages and advisories specific to impacted 

communities. These materials support local, state, tribal, territorial, and insular area risk 

communication efforts and support ESF #15 and the JIC messaging for press releases in 

alternate formats and multiple languages, as appropriate. 

 Support JFO and Rapid Needs Assessment Teams to identify public health hazards 

associated with food safety, water quality, waste water and solid waste, vector control 

and other environmental health hazards. 

 Coordinate with the Department of Labor (DOL)/Occupational Safety and Health 

Administration (OSHA) on responder safety guidance, if necessary. 

 ESF #11 

 Respond to animal and agricultural health emergencies under USDA statutory authority 

or as mission assigned. 
Response Federal Interagency Operational Plan 

C.2-15

Phase 2c—Sustained Response 

End State: Federal medical response support has supplemented local, state, tribal, territorial, and 

insular area efforts to provide care to those likely to survive their injuries. (HM-MO-2, HM-MO-3) 

 Tasks by Phase, by ESF

 ESF #8

 Provide pharmacy prescription support for population (based on national average data

from HHS). 

 Maintain shared situational awareness and determine need to rotate medical teams and 

other medical resources to allow personnel to rest and maintain capability. 

 Maintain coordination of patient evacuations. 

 When mission-assigned, HHS, FEMA, DoD, and the VA may coordinate evacuation of 

patients from patient collection sites (in the case of DoD—from Aerial Ports of 

Embarkation), to designated Federal Coordinating Centers. 

 Monitor and ensure the safety availability and logistical requirements of blood and 

tissues. 

 Convene the Federal Disaster Behavioral Health Group to promote a common operating 

picture and facilitate coordination of Federal response efforts regarding behavioral health. 

 Provide surge capability support to public health laboratories for diagnostics and 

confirmatory testing. 

 Deliver to the requesting state medical countermeasures, equipment, and supplies from 

the Strategic National Stockpile. 

 If necessary, request international medical team support through the International 

Assistance System. 

 Coordinate Federal healthcare providers and coordinate with states to integrate providers 

and any additional Federal resources with local, state, tribal, territorial, insular area, 

NGO, and private sector healthcare providers. 

 Coordinate with states to integrate Federal ESF #8 resources with out-of-state resources 

that states provide through EMAC. 

 Assist states in developing a strategy for augmenting or replacing current Federal 

Government resources employed in the response. 

 Provide reports on the status of medical operations and objectives to maintain a shared 

situational understanding and the common operating picture. 

 Conduct inspections and damage assessments of facilities and products (human drugs, 

biologics, medical devices, food for humans and animals, and veterinary drugs) regulated 

by the Food and Drug Administration. 

Phase 3a—Short-term Recovery 

End State: Federal medical response support has begun to transition to pre-incident levels. 

(HM-MO-4) 
Response Federal Interagency Operational Plan 

C.2-16

 Tasks by Phase, by ESF 

 ESF #6 

 Coordinate with local, state, tribal, territorial, and insular area governments and voluntary 

organizations to ensure resources are available (e.g., registration, case management, and 

housing). 

 ESF #8 

 Identify areas where objectives have been achieved and reposition or demobilize 

personnel when appropriate. 

 Begin backfill of medical support packages from Strategic National Stockpile. 

 Assist the appropriate government jurisdictions and private sector components under 

local government regulation and oversight to resume direct authority for operations and 

administration as soon as effectively possible. 

 Coordinate with local, state, and Federal behavioral health partners to identify emerging, 

ongoing, or unmet needs and facilitate provision of appropriate services and resources. 

 Monitor Crisis Counseling Program grants to states for disaster-related behavioral health 

needs in coordination with FEMA. 

 Provide technical expertise or guidance to state or local authorities as they rebuild their 

Public Health, Healthcare, and Emergency Medical Services infrastructures. 

 Coordinate with local, state, tribal, territorial, and insular area offices regarding the return 

of patients evacuated from the affected area. 

Administration and Support 

Each Federal department and agency will continue to maintain its roles and responsibilities under 

Federal laws and regulations. Each department and agency will adhere to individual activation, 

notification, deployment, and deactivation procedures. 

If there is no Stafford Act Declaration, a request may be made for a supplemental appropriation from 

Congress, but there is no guaranteed reimbursement by FEMA of the cost for response missions. If 

HHS receives a request for support from another Federal department agency under the Economy Act, 

the mechanism is similar to the mission assignment process when there is a Stafford Act Declaration. 

The EMAC is a national interstate mutual aid agreement that enables states to share resources during 

times of disaster. EMAC Articles V, IV, VII, and IX addresses primary concerns of personnel and 

states offering and receiving assistance. A person who holds a license, certificate, or other permit 

issued by any state during a disaster would be deemed licensed, certified, or permitted to render aid 

by a state that has declared an emergency or disaster and seeks assistance. 
Response Federal Interagency Operational Plan 

C.2-17

Table C.2-1: Public Health, Healthcare, and Emergency Medical Services Core Capability Waivers 

Type Description

Waiver The Secretary of Health and Human Services considers declaring a Public Health 

Emergency for affected states which enables the Secretary of Health and Human 

Services to take actions such as waiving or modifying temporarily certain Medicare, 

Medicaid, Children’s Health Insurance Program, and other Federal statutes to ensure 

that sufficient healthcare items and services are available to meet the needs of individual 

enrolled in Medicare, Medicaid, and Children’s Health Insurance Program and to allow 

healthcare providers providing medical services, but unable to comply with certain 

program requirements, to be paid for their good-faith services and be exempt from 

sanctions for noncompliance. This 1135 waiver authority may help healthcare facilities 

and providers deal with surges of patients. The Secretary of Health and Human Services 

must declare a Public Health Emergency, and the President must declare an emergency 

or major disaster under the Stafford Act or National Emergencies Act before HHS may 

issue 1135 waivers.
Response Federal Interagency Operational Plan 

C.2-18

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Response Federal Interagency Operational Plan 

C.3-1 

Appendix 3 to Annex C: Environmental Response/Health and 

Safety

Purpose 

The purpose of this appendix is to describe the Environmental Response/Health and Safety core 

capability. 

The Environmental Response/Health and Safety core capability provides for the conduct of 

appropriate measures to ensure the protection of the health and safety of the public and workers, as 

well as the environment, from all hazards in support of responder operations and the affected 

communities. This capability supports responder health and safety, public health, environmental 

health, environmental response, and protection of natural and cultural resources. 

The Environmental Response/Health and Safety (EH) critical tasks are as follows: 

 EH-Critical Task-1. Conduct appropriate measures to ensure the protection of the health and 

safety of the public and workers, as well as the environment, from all hazards in support of 

responder operations and the affected communities. 

 EH-Critical Task-2. Assess, monitor, perform cleanup actions, and provide resources to meet 

resource requirements and to transition from sustained response to short-term recovery. 

 EH-Critical Task-3. Identify, evaluate, and implement measures to prevent and minimize 

impacts to the environment, natural and cultural resources, and historic properties from all-hazard 

emergencies and response operations. 

Situation 

The primary mission of first responders is the health and safety of a community and its population. It 

is vital that personnel be trained, equipped, and available at the time of an incident to protect the 

health and safety of on-scene first responders. Responders may face a wide range of safety and health 

hazards across incident types, such as heat stress, electrical hazards, and fall hazards, hazards 

associated with heavy equipment use and debris, and oil, chemical, biological, or radiological 

hazards. In addition to meeting the health and safety needs of first responders, appropriate actions 

must be taken to protect public health and the environment, including natural and cultural resources. 

Local, state, tribal, territorial, insular area, and Federal government agencies, NGOs, and private 

sector organizations with response workers at the incident location provide health and safety 

technical support and expertise in accordance with their department’s or agency’s mission and 

responsibilities, in coordination with DOL/OSHA. 

During a catastrophic incident, there may be multiple, significant environmental, safety, and/or 

health hazards within an impacted area that require Federal-level support and lifesaving and lifesustaining activities. Multiple significant hazards may result in a shortage of environmental 

response/health and safety resources. In the event of a shortage, responders will prioritize response 

actions to focus on minimizing human exposure to environmental public health hazards such as 

contaminated food, air, water, vegetation, and sediments, and minimizing the spread of 

environmental contamination. In doing so, emergency responders can mitigate the risk of further 

exposure to harmful cascading incidents resulting from the incident. 

When Federal-level support is necessary for response to an emergency or disaster, guidelines for 

information dissemination may be incident-dependent. For example, in the event of a terrorist attack, 
Response Federal Interagency Operational Plan 

C.3-2 

or other criminal activity, information concerning potentially contaminated environments needed to 

protect responders and the public may be sensitive and/or classified as national security information. 

In such circumstances, this information can be provided by the FBI located within the Unified 

Command at the Incident Command Post, an FBI Command Post at the incident site, an FBI JOC 

Consequence Management Group, or the FEMA JFO, as appropriate. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. 

Mission 

Federal interagency partners will conduct health and safety hazard assessments, perform cleanup, 

implement measures, and disseminate guidance and resources to support the protection of the health 

and safety of the public and workers, as well as protection of the environment including natural and 

cultural resources. 

Execution 

Concept of Operations 

Phase 1 

DHS Science and Technology Directorate coordinates partnerships with academia and professional 

organizations, while the White House Office of Science and Technology Policy coordinates with 

international and domestic partners. DOS coordinates the development of pre-incident agreements 

and exchanges needed to permit international entities to provide personnel, resources, and 

coordinates the activities of other Federal departments and agencies working with international 

partners. 

To ensure the preparedness of ESF #10 Federal environmental response capabilities, EPA and 

USCG, in conjunction with other Federal departments and agencies, review and update existing 

response plans (e.g., National, Regional, and Area plans) and standard operating procedures to 

incorporate best practices and lessons learned from previous incidents or exercises. They also 

develop PSMAs, MOUs, and IAAs, as appropriate; develop and implement personnel training 

programs; and update key personnel rosters with accurate contact information. 

ESF #11 is tasked with the protection of natural and cultural resources and historic properties. The 

Department of the Interior leads this specific function of ESF #11 and coordinates with USDA and 

other Federal and non-federal agencies and organizations. DOI coordinates with Federal and NGO 

partners to provide guidance and direction in carrying out prevention, preparedness, and response 

activities to those environmental concerns off DOI lands and potential trust and NCH resources of 

concern to DOI, which could be adversely affected during preparedness, response and recovery 

activities. DOI maintains SOPs, PSMAs, and has developed qualifications for NCH technical 

specialists for registering eligible responders. 

Under the Worker Safety and Health Support Annex, DOL/OSHA coordinates the Worker Safety 

and Health Coordination Committee, which is responsible for planning and preparedness to protect 

the safety of response workers for incidents requiring a coordinated Federal response. 

Federal departments and agencies develop environmental response and/or health and safety training 

and identify resources to protect and monitor response workers and the affected populations, 
Response Federal Interagency Operational Plan 

C.3-3 

establish vendor contracts, and identify other methods for procurement prior to a disaster or 

emergency. 

Phase 2 

The fire departments of local and tribal government generally provide the first response to oil and 

hazardous materials incidents, including conducting the environmental response and taking 

appropriate health and safety actions. State and territorial governments may have environmental 

response programs that supplement local governments for larger-scale or more complex responses. 

The private sector and other parties responsible for oil discharges and hazardous substance releases 

also have responsibilities for responding under the National Oil and Hazardous Substances Pollution 

Contingency Plan. For Stafford Act responses, when local and state environmental response 

resources are inadequate, EPA coordinates with local, state, tribal, territorial, insular area, Federal, 

nongovernmental, and private sector partners to determine the personnel, equipment, and resources 

needed for an environmental response. 

EPA and USCG OSCs lead ESF #10 Federal on-scene environmental response activities, with 

support from partner departments and agencies. Initial efforts focus on identifying the nature and 

extent of oil/hazardous materials environmental contamination, and as needed, taking any immediate 

steps to mitigate high priority releases. The assessment of environmental contamination may include 

use of real-time environmental monitoring with field instruments; collecting environmental samples 

and analyzing them in mobile or fixed laboratories; conducting aerial overflights with aircraft 

capable of air monitoring for contaminants; and predictive modeling, such as atmospheric plume 

modeling provided by the Interagency Modeling and Atmospheric Assessment Center (IMAAC). 

Environmental assessment information feeds into the overall situational awareness for the incident, 

and is used by appropriate entities to support decisions regarding actions needed to protect responder 

health and safety, public health and environmental resources (e.g., for oil/hazardous materials 

incidents, whether contaminated evacuation routes are safe to use and whether people should return 

to their homes). It is also used to determine appropriate environmental response actions and verify 

the effectiveness of actions taken. ESF #10 typically works through local, state, tribal, territorial, and 

insular area law enforcement officials to secure access to oil/hazardous materials contaminated areas. 

USCG may also exercise its own authorities to limit access on navigable waters. 

Environmental response activities include the prevention and stabilization of oil/hazardous materials 

releases; the assessment of the extent of environmental contamination and options for 

decontamination and cleanup; the storage, treatment, and disposal of oil/hazardous materials wastes 

(including contaminated debris and contaminated animal carcasses); the protection of natural 

resources; and the provision of technical expertise to support protective actions for the general 

public. 

DOI leads ESF #11 – Protection of natural and cultural resources and historic properties in 

coordination with USDA and with support from partner departments and agencies. Upon issuance of 

MAs and IAAs, DOI and its support agencies can leverage their technical expertise and 

specializations. States, tribes, and territories, or other Federal agencies, can request technical 

assistance with complying with appropriate environmental laws and regulations, as well as 

identifying, evaluating, addressing, stabilizing, sampling, assessing, or surveying natural and cultural 

resources. In addition, ESF #11 can be asked to coordinate with other ESFs, e.g., ESF #3 and ESF 

#10 on the removal of debris affecting natural and cultural resources. 

ESF #11 can also respond to wildlife disease emergencies, including zoonosis. Through mapping, 

modeling, monitoring, testing of wildlife (terrestrial and marine), and designing sampling of 
Response Federal Interagency Operational Plan 

C.3-4 

strategies for wildlife and environmental reservoirs. ESF #11 provides guidance for disease 

prevention, control, and eradication of zoonotic diseases in wildlife and the environment. 

All Federal departments and agencies take appropriate actions to protect the safety and health of their 

responding workers. To ensure response worker safety during incidents requiring a coordinated 

Federal response, DOL/OSHA, as the Coordinating Agency for the NRF Worker Safety and Health 

Support Annex, coordinates technical support for response worker safety and health. As necessary, 

DOL/OSHA also coordinates with cooperating departments and agencies identified in the Worker 

Safety and Health Support Annex to most effectively support the worker safety and health needs of 

the incident, which may include: identification, assessment, and monitoring of worker safety and 

health hazards; development of site-specific Health and Safety Plans; identification of appropriate 

hazard controls, including PPE and the coordination and provision of incident-specific response 

worker training. 

Phase 3a 

In conjunction with the Natural and Cultural Resources Recovery Support Function (NCR RSF), 

coordinate with appropriate local, state, tribal, territorial, and insular area governments to determine 

how environmental response short-term recovery activities will integrate with long-term actions, 

assessing and addressing capacity gaps. Work performed through FEMA-issued mission assignments 

during the response phase (e.g., damage assessments) will assist in informing the mission scoping 

assessment prepared by the NCR RSF. In coordination with ESF #8, DOL/OSHA and the supporting 

departments and agencies identified in the Worker Safety and Health Support Annex support medical 

surveillance and monitoring efforts, as required by the incident, and evaluate the need for longerterm epidemiological follow-up and medical monitoring of response and recovery workers. 

Coordinating Structure 

Many ESFs support the Environmental Response/Health and Safety core capability. The ESFs that 

perform tasks under this core capability are summarized in Figure C.3-1. Specific tasks conducted by 

these ESFs are identified in the Tasks by Phase, by ESF section below. 
Response Federal Interagency Operational Plan 

C.3-5 

Figure C.3-1: Coordination of ESF Support to Environmental Response/Health and Safety 

Environmental 

EPA serves as the Primary Agency for ESF #10 actions in the inland zone, and USCG serves as the 

Primary Agency for ESF #10 actions in the coastal zone (as defined in Regional and Area 

Contingency Plans). For incidents affecting both, EPA is the Primary Agency, and USCG serves as 

the deputy. 

The EPA/USCG regional leads for ESF #10 send representatives to the incident scene. In 

coordination with local, state, tribal, territorial, and/or insular area officials, the OSCs establish ESF 

#10 Incident Commands or Unified Commands to carry out ESF #10 assignments from the JFO 

UCG. EPA regional and USCG district EOCs may also be activated to provide support to the OSCs, 

as needed. 

Regional leads for ESF #10 send representatives to the RRCC/JFO and may also send representatives 

to local, state, tribal, territorial, and insular area EOCs. The ESF #10 representatives at the 

RRCC/JFO help coordinate between the RRCC/JFO, the ESF #10 Incident Command/Unified 

Command activities, and EPA regional/USCG district offices. For larger-scale incidents, ESF #10 

may establish an Area Command and EPA/USCG national-level EOCs may be activated to provide 

additional response support. Additionally, headquarters EPA/USCG ESF #10 deploys representatives 

to the NRCC, as requested by FEMA. 
Response Federal Interagency Operational Plan 

C.3-6 

EPA and USCG OSCs may request the assistance of “special teams” as provided within the National 

Contingency Plan (40 CFR 300) with expertise in specific areas, when needed. In addition, EPA and 

USCG are supported by other Federal departments and agencies as described in ESF #10. At the field 

level, EPA and USCG may coordinate requests for support from these departments and agencies at 

the RRCC/JFO, or may activate Regional Response Teams, which are co-chaired by EPA and USCG 

and include representatives from ESF #10 support departments and agencies. If needed, requests for 

interagency support may also be elevated to the National Response Team or NRCC. 

The Department of the Interior (DOI) is the Primary Agency for implementing the NCH resources 

component of ESF #11. As such, DOI organizes and coordinates the capabilities and resources of the 

Federal Government to protect NCH resources and inform long-term recovery in the event of a 

declared emergency or disaster requiring a coordinated federal response and when requested. When 

requested, ESF#11 can assist in the prevention, preparedness, planning, response, and short-term 

recovery phases for natural and cultural resources and historic properties and can provide support 

(including facilitating the delivery of services, technical assistance, and expertise) to: 

 Local, state, and tribal authorities 

 Other Federal agencies 

 Partner organizations (as described in the ESF #11 annex). 

The Office of Environmental Policy and Compliance (OEPC) is responsible for providing the NCH 

Primary Agency function for DOI. 

Although rarely a threat to human health, the presence of animal carcasses in the incident area can 

create logistical challenges for response operations. The appropriate removal and disposal of animal 

carcasses may require coordination amongst ESFs #3, #10, and #11. Specific responsibilities for 

animal carcass removal are as follows: Under IAA or Mission Assignment, ESF #3 supports the 

removal of animal carcasses classified as debris; ESF #10 is responsible for the removal of animal 

carcasses that have been contaminated by oil or hazardous materials; and ESF #11 is responsible for 

the removal of animal carcasses infected with a foreign animal disease. ESF #8 may provide public 

health guidance regarding the health threats an animal carcass disposal site might pose, such as water 

quality or vector-spread diseases, to the state or Federal agency responsible for disposal. 

Health and Safety 

When FEMA is leading the Federal response efforts (i.e., typically under the Stafford Act), FEMA 

Safety and Health, serving as the Safety Officer within the Unified Coordination Staff, is the contact 

for worker safety and health in addition to its role for protecting FEMA-deployed assets. When a 

more extensive worker safety and health response is warranted, FEMA may mission-assign 

DOL/OSHA to coordinate and/or provide worker safety and health support. DOL/OSHA serves as 

the Coordinating Agency for the NRF Worker Safety and Health Support Annex and provides 

technical assistance and support to responding agencies concerning the health and safety of response 

and recovery workers. Additionally, the Worker Safety and Health Coordination Committee 

identifies and integrates potential response worker safety and health assets needed for emergency 

planning and preparedness. Coordinated by DOL/OSHA and comprised of representatives of the 

cooperating departments and agencies, the committee serves as the forum to ensure that the 

representatives of the occupational safety and health programs from the cooperating departments and 

agencies understand how worker safety and health will be provided during activations, as well as the 

resources available. 
Response Federal Interagency Operational Plan 

C.3-7 

To ensure worker safety and health in support of the NRF Worker Safety and Health Support Annex, 

all departments and agencies are expected to coordinate with FEMA Safety and Health and, when 

activated, DOL/OSHA on the following tasks: 

 Determine potential needs and identify resources for response worker safety and health support. 

 Participate in the Unified Coordination Interagency Safety and Health Committee and the 

Worker Safety and Health Coordination Committee to facilitate coordination of the response 

worker safety and health program among different departments and agencies. 

 Provide occupational safety and health technical advice and support, including monitoring and 

providing support and assistance in the monitoring of response worker safety and health hazards; 

and monitoring and/or providing technical assistance and support in developing, implementing, 

and/or monitoring an incident PPE program. 

 Resolve technical or other disputes involving response worker safety and health. 

 Share data among response organizations, including response worker exposure and DOL/OSHA 

300 (or equivalent) accident/injury documentation. 

 Participate in incident-specific response worker training. 

 Provide technical assistance, advice, and support for: medical surveillance, monitoring of 

response workers, including exposure to toxic substances (e.g., asbestos and lead) as required by 

regulation; appropriate immunizations and prophylaxis for response workers; and psychological 

resiliency. 

EPA and USCG are included among the cooperating departments and agencies under the Worker 

Safety and Health Support Annex and coordinate with DOL/OSHA as needed regarding worker 

safety and health hazards associated with oil or hazardous materials sites in the impacted area. 

ESF #10 coordinates with ESF #8 regarding public health matters related to oil/hazardous materials 

contamination. 

ESFs that provide support to the delivery of the Environmental Response Health and Safety core 

capability are included in the following section. 

Environmental Response/Health and Safety Tasks 

Mission Objectives 

 EH-MO-1: Determine the appropriate environmental response actions and protective measures 

for response workers and recommend protective measures to the public. (Supports EH-Critical 

Task-1) 

 EH-MO-2: Provide technical assistance to identify specific environmental risks and safety and 

health hazards throughout the duration of the response, develop health and safety plans, activate 

and deploy required environmental response/health and safety resources for responder safety. 

(Supports EH-Critical Task-1) 

 EH-MO-3: Provide incident-specific response worker health and safety and/or other related 

training. (Supports EH-Critical Task-1) 

 EH-MO-4: Coordinate planning and operational analysis among public, private, and 

nongovernmental sector services to deliver environmental response/health and safety 

requirements. (Supports EH-Critical Task-2) 
Response Federal Interagency Operational Plan 

C.3-8 

 EH-MO-5: Analyze, prioritize, and allocate resources to identify and employ Federal resources to 

support operations for the delivery of Environmental Response/Health and Safety capabilities. 

(Supports EH-Critical Task-2) 

 EH-MO-6: Alert, deploy, and stage Federal resources to support the assessment and cleanup of 

the environment. (Supports EH-Critical Task-2) 

 EH-MO-7: Coordinate the collection and sharing of predictive modeling data, on-scene 

environmental, hazard, and risk assessments, and sampling and monitoring data. (Supports EHCritical Task-1, EH-Critical Task-2) 

 EH-MO-8: Provide technical assistance to identify natural and cultural resources and historic 

properties and assess damage and risks to the resources, when requested (Supports EH-Critical 

Task-3) 

 EH-MO-9: Advise on appropriate and assist with implementation of protective measures to 

minimize impacts to natural and cultural resources and historic properties from response 

operations, when requested. (Supports EH-Critical Task-3) 

 EH-MO-10: Coordinate planning, and information sharing among Federal and nongovernmental 

sector on natural and cultural resources and historic properties. (Support EH-Critical Task-3) 

Phase 1a—Normal Operations 

End State: Environmental response/health and safety planning, training, and outreach to public, 

private, and NGOs has occurred, and will be ongoing. (Supports EH-MO-4, EH-MO-10) 

Tasks by Phase, by ESF 

 ESF #8 

 Support the Worker Safety and Health Support Annex, provide technical assistance, and 

plan for the development of health exposure risk assessments and health and safety plans 

to control hazards for response workers. 

 ESF #10 

 Coordinate between Federal departments and agencies to strengthen relationships and 

identify shortfalls. 

 Review, update, and exercise the following: 

‒ Existing response plans and standard operating procedures to incorporate best 

practices and lessons learned 

‒ Key personnel rosters with accurate contact information (e.g., special teams, EOC 

personnel, representatives to the NRCC, RRCC, and JFO). 

 Develop and review PSMAs, MOUs, and IAAs. 

 Maintain effective communications by updating point of contact lists, verifying video 

teleconference and telecom capabilities, and testing information systems. 

 Develop and implement personnel training programs for environmental response. 

 Develop, maintain, and provide information on the environmental and health effects of 

toxic substances. 
Response Federal Interagency Operational Plan 

C.3-9 

 ESF #11 

 Develop and update national animal and plant surveillance plans, as needed. 

 Develop and update catalog of resources and points of contact for natural and cultural 

resources. 

 Identification and registering of individuals with the necessary technical and subject 

matter expertise to be deployed to the NRCC or into the field to support FEMA-issued 

mission assignments. 

Phase 1b—Elevated Threat 

End State: Federal environmental response/health and safety resources are identified and inventoried, 

special environmental risks and safety hazards are identified to the extent possible based on available 

information, and personnel are trained. (Supports EH-MO-2, EH-MO-3) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Environmental response/health and safety resources have been readied for deployment in 

anticipation of support needed by response workers and the general public, and appropriate contact 

has been made with local, state, tribal, territorial, and insular area officials. (Supports EH-MO-1, EHMO-4, EH-MO-5, EH-MO-6, EH-MO-7, EH-MO-10) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Preliminary incident-specific information has been reviewed to determine initial 

environmental response/health and safety response actions, including the alert, staging, allocation, 

and mobilization of personnel and equipment. (Supports EH-MO-1, EH-MO-2, EH-MO-3, EH-MO4, EH-MO-5, EH-MO-6, EH-MO-7, EH-MO-8, EH-MO-9, EH-MO-10) 

 Tasks by Phase, by ESF 

 ESF #7 

 Prepare and stage regional PPE (coordinate with NRCC and Logistics Management 

Center). 

 Provide technical assistance and support for response and recovery worker access to 

required PPE and the supplemental distribution of such PPE on an ad-hoc basis. 

 ESF #8 

 Provide technical assistance, advice, and support for medical surveillance and monitoring 

as required by regulation (e.g., asbestos and lead). 

 Provide needs assessments, technical assistance, advice, and support for short- and longterm occupational medical care and health services for response workers. 
Response Federal Interagency Operational Plan 

C.3-10

 ESF #10 

 Coordinate with FEMA and state, tribal, territorial, and insular area partners, as 

appropriate, in affected areas to determine needs for ESF #10 support and prioritize 

requests for assistance. 

 Activate Federal ESF #10 resources at the regional and, as needed, national level to 

provide assistance. Resources may include EPA/USCG OSCs and Incident Management 

Team personnel, supporting contractors, and special teams. 

 Activate EPA/USCG field and headquarters EOCs as needed. 

 Coordinate with local, state, tribal, territorial, and insular area officials, as appropriate, to 

identify areas of potential oil/hazardous materials releases and hazards to response 

personnel. 

 Utilize local, state, EPA, and USCG database information to identify potential locations 

of oil/hazardous materials facilities and sites that may have releases. 

 Utilize predictive modeling data on atmospheric dispersion of contaminants from the 

IMAAC if activated. 

 Initiate deployment of resources to the NRCC, RRCC, JFO, state/local EOCs, and 

impacted areas, as appropriate. 

 Initiate health and safety planning for ESF #10 field responders. 

 Initiate coordination with ESF #10 Support Agencies and other Federal partners as 

appropriate. 

 Implement environmental compliance and consultation requirements, as appropriate, for 

threatened natural and cultural resources and historic properties (NCH). 

 ESF #11 

 Provide technical and subject matter experts to staff the RRCC/NRCC. 

‒ Organize conference calls in collaboration with the Heritage Emergency National 

Task Force (HENTF) and ESF #11 support agencies. 

‒ Utilize a national network of information and expertise to identify local, state, and 

tribal concerns regarding cultural and historic resources and establish situational 

awareness of current issues and potential unmet needs represented by the Heritage 

Emergency National Task Force. 

 When mission assigned, ESF #11 – Protection of Natural and Cultural Resources and 

Historic Properties can deploy subject matter experts to provide the following: 

‒ Identify, evaluate, and stabilize cultural resources in support of disaster operations. 

‒ Assist with museum collections, individual objects, archives and public records in 

support of disaster operations. 

‒ Survey or assist with the gathering of GIS data, aerial photography, and satellite 

remote sensing, in order to identify the locations of cultural resources [e.g., historic 

structures and districts] and natural resources [e.g., threatened and endangered 

species and wetlands]. 
Response Federal Interagency Operational Plan 

C.3-11

‒ Coordinate with ESF #3 on the removal of debris (when classified as debris) affecting 

NCH. 

‒ Coordinate with ESF #10 on the removal of debris affecting NCH when that debris is 

contaminated by oil or hazardous materials. 

‒ Serve as the Federal lead on zoonotic and wildlife diseases through the USGS and the 

National Wildlife Health Center. 

‒ Assist with environmental compliance: 

1. Section 106 of the National Historic Preservation Act 

2. Endangered Species Act, Threatened and Endangered Species Consultation 

3. Migratory Species Act, Magnuson-Stevens Act, Coastal Management Zone. 

‒ Perform assessments and surveys to assist with planning and operational decisions 

(e.g., temporary housing and sheltering plans). 

‒ Provide technical advice on mitigating impacts of contaminants, makes available 

environmental data archive for determining baseline conditions, and recommends 

clean-up actions to minimize damage to sensitive natural and cultural resources and 

historic properties resources from response activities. 

Phase 2b—Deployment 

End State: Based on initial hazard assessments, Federal technical experts, in coordination with the 

affected jurisdictions, have identified initial high priority environmental response activities, public 

protective actions, and responder health and safety protective actions. (Supports EH-MO-1, EH-MO2, EH-MO-3, EH-MO-4, EH-MO-5, EH-MO-6, EH-MO-7, EH-MO-8, EH-MO-9, EH-MO-10) 

 Tasks by Phase, by ESF 

 ESF #5 

 Activate appropriate ESFs at the national and regional level to provide coordination, 

technical assistance, and response to environmental/health and safety response. 

 ESF #7 

 Deploy regional PPE. 

 ESF #10 

 Ramp up deployments of ESF #10 personnel to the impacted area to provide 

coordination, technical assistance, and response. 

 Establish ESF #10 ICs, or Unified Commands with local, state, tribal, territorial, and/or 

insular area environmental response agency partners, as initial Federal resources arrive 

on-site. Initiate formal incident action planning and refine identification of high-priority 

assessment and response objectives. 

 Initiate initial high-priority actions to assess, prevent, minimize, or mitigate releases of 

oil/hazardous materials, as possible. Assessment may include environmental monitoring 

and reconnaissance to identify locations of oil/hazardous materials releases and 

oil/hazardous materials containers. 
Response Federal Interagency Operational Plan 

C.3-12

 Provide recommendations and available environmental assessment information to local, 

state, tribal, territorial, and/or insular area officials, as appropriate, to support decisions 

on evacuation/ingress routes and other public protective actions, if applicable. 

 Provide actual site data to IMAAC as it becomes available to help refine IMAAC model, 

if the IMAAC is activated. 

 Coordinate scientific input regarding the environmental response from local, state, tribal, 

territorial, insular area, Federal, private, and academic entities. 

 Refine health and safety plans for ESF #10 responders and coordinate activities with 

Worker Safety and Health Annex as appropriate. 

 Provide environmental response expertise to support ESF #15 public information 

activities (e.g., developing initial public messaging regarding public health hazards and 

environmental activities). 

Phase 2c—Sustained Response 

End State: Predictive modeling data has been coordinated and disseminated, comprehensive hazard 

and risk assessments have been performed, and sampling and monitoring data has been collected. 

Planning, operational analysis, and delivery of environmental response/health and safety 

requirements have been coordinated across public, private, and nongovernmental sectors. (Supports 

EH-MO-1, EH-MO-2, EH-MO-3, EH-MO-4, EH-MO-5, EH-MO-6, EH-MO-7, EH-MO-8, EH-MO9, EH-MO-10) 

 Tasks by Phase, by ESF 

 ESF #3 

 Manage, monitor, and/or provide technical advice in the demolition and subsequent 

removal and disposal of buildings and structures contaminated with chemical, biological, 

radiological, and nuclear elements, in consultation with ESF #10. 

 ESF #10 

 Conduct assessment of oil/hazardous materials releases, which may include sampling and 

monitoring of air, water, soil, buildings, and other infrastructure. 

 Take actions, as appropriate, to stabilize the release and prevent the spread of 

contamination; conduct environmental cleanup actions and decontaminate buildings and 

structures, and manage wastes. Coordinate options for environmental cleanup and waste 

management with local, state, tribal, territorial, and insular area governments, and other 

Federal partners, as appropriate. 

 Engage with private sector facilities that handle oil and hazardous substances to ensure 

that no release has occurred and that appropriate protective measures are in place to stop 

or minimize any potential future release. 

 Take actions, as appropriate, to collect household hazardous waste, monitor disposal of 

debris, sample and monitor air and water quality, and protect natural resources. 

 Coordinate public information support activities, including posting environmental data 

summary results on Web sites and working with environmental and public health agency 

partners to develop public messaging and Federal recommendations regarding the 

impacts of the environmental contamination and appropriate public protective actions 

(e.g., food/water safety, potential needs for population relocation). 
Response Federal Interagency Operational Plan 

C.3-13

 Manage staffing and resource deployments in support of response objectives, including 

rotation of response personnel and activation of special teams and Support Agencies in 

support of the ESF #10 Incident Command/Unified Command. 

 Determine whether operational objectives have been achieved and assess continued need 

for Federal support; begin to transition any remaining environmental response activities 

to local, state, tribal, territorial, and/or insular area officials as they become capable of 

assuming responsibility; and plan for demobilization, as appropriate. 

 ESF #11 

 When requested, monitor environmental conditions and response activities and conduct 

sampling to determine impacts on natural and cultural resources and historic properties. 

 Provide technical assistance, guidance, best management practices, and consultation on a 

wide range of response actions including guidance on threatened and endangered species. 

 Under a mission assignment, continue to monitor and control conditions in museum and 

archival collections, historic structures, and other cultural resources that pose a public or 

occupational health risk such as rampant mold, contaminants that remain after flood 

waters recede, and effects of prior pesticide applications such as arsenic. 

 Provide scientific/technical advice, information, and assistance to help prevent or 

minimize damage to natural and cultural resources. 

 Maintain situational awareness through our support agencies and partner organizations 

such as the National Archives and Records Administration and Heritage Emergency 

National Task Force. 

Phase 3a—Short-term Recovery 

End State: Appropriate plans are in place for a smooth transition to local, state, tribal, territorial, and 

insular area officials for any remaining environmental response activities, and any needed Federal 

advice on continued protection of workers have been provided. (Supports EH-MO-7, EH-MO-8, EHMO-9, EH-MO-10) 

 Tasks by Phase, by ESF 

 ESF #8 

 Evaluate the need for longer term epidemiological follow-up and medical monitoring of 

response and recovery workers. 

 ESF #10 

 Begin coordinating with appropriate local, state, tribal, territorial, insular area, and 

Federal recovery officials to determine how environmental response activities will 

integrate with recovery actions and how the environmental cleanup decision-making 

process should be coordinated with the recovery decision-making process for large-scale 

environmental contamination incidents. 

 Finalize plans, as possible, that describe the transition of ESF #10 Federal actions to 

local, state, tribal, territorial, and/or insular area entities. 
Response Federal Interagency Operational Plan 

C.3-14

 ESF #11 

 Coordinate with the Federal Disaster Recovery Coordinator and the Natural and Cultural 

Resources Recovery Support Function to begin the transition to long-term recovery 

activities. 

 Upon completion of work under response provide relevant data to the FDRC and NCR 

RSF. This would include reports and status of work performed under MA (e.g., damage 

assessment, condition reports and restoration plans, monitoring reports, surveillance 

plans, etc.). 

Administration and Support 

The Environmental Response/Health and Safety core capability will follow standard protocols for 

Activation, Notification, Deployment, and Deactivation with each Federal department and agency 

continuing to maintain its roles and responsibilities under Federal laws and regulations. 

EMAC options will be utilized as needed. 

MOU options will be utilized as needed. 

Waivers, exceptions, and exemptions related to the delivery of the Environmental Response/Health 

and Safety core capability. 

Table C.3-1: Environmental Response/Health and Safety Core Capability Waivers 

Type Description

Waiver In the event of a fuel supply emergency, EPA, with the concurrence of the DOE, may 

temporarily waive a fuel or fuel additive requirement if doing so will alleviate the fuel 

supply emergency. When granted, the waiver allows use of a fuel that normally is not 

allowed in a particular time period or geographic area.
Response Federal Interagency Operational Plan 

C.4-1 

Appendix 4 to Annex C: Fatality Management Services

Purpose 

The purpose of this appendix is to describe the delivery of the Fatality Management Services core 

capability. 

The Fatality Management Services core capability provides fatality management services, including 

body recovery supporting death investigation and fatality identification, working with local, state, 

tribal, territorial, and insular area authorities to provide temporary mortuary solutions, sharing 

information with fatality management services for the purpose of reunifying family members and 

caregivers with missing persons/remains with minimum possible delay, and providing counseling to 

the bereaved. 

The Fatality Management (FM) critical tasks are as follows: 

 FM-Critical Task-1: Establish and maintain operations to recover a significant number of 

fatalities over a geographically dispersed area and return them to authorized persons for final 

disposition. 

 FM-Critical Task-2: Establish and maintain operations to mitigate hazards from remains and 

facilitate care to survivors. 

 FM-Critical Task-3: Support investigations to identity and gather evidence, for the protection 

of public health and safety. 

Situation 

Fatality Management provides a basic human need, restoring functionality to society and assisting in 

the transition of human, business, and societal relationships after the death of an individual. Effective 

fatality management protects human lives and rapidly restores the social and cultural fabric of a 

community. 

A mass fatality incident will place extraordinary logistical, religious, cultural, and emotional 

demands on the affected jurisdictions. The timely, safe, and respectful disposition of the deceased is 

an essential component of an effective response. Accurate, sensitive, and timely communication with 

the public is crucial to this effort. An incident involving mass fatalities will require extensive Federal 

interagency support in all aspects of fatality management. Processing the scene, recovering, 

identifying, and determining the cause and manner of death can be lengthy and painstaking work, 

often complicated by the desires of families and the needs of investigative agencies. The final 

objectives of the fatality management process are to a) establish the death of an individual, b) return 

some physical remains to family or responsible party, and c) recover and return a complete set of 

remains for final disposition. 

The management of mass fatalities includes the location, collection, documentation, retrieval, and 

transportation of human remains, personal effects, and evidence to the examination location or 

incident morgue, processing for identification of the dead, certification of cause and manner of death, 

release of remains to an authorized individual, final disposition, release of remains, and behavioral 

health assistance for the grieving. 

Mass fatalities present substantial logistical demands for resources, such as cold storage space, 

human remains pouches, caskets, and embalming supplies. If the deceased have been contaminated 
Response Federal Interagency Operational Plan 

C.4-2 

with chemical, biological, or radioactive agents, mortuary personnel will need to use special 

precautions and PPE to protect themselves and to prevent cross-contamination. 

The location, collection, documentation, and retrieval of remains and other pertinent materials from 

the incident affect the speed and accuracy of fatality identification. Uncoordinated removal and 

transportation of the deceased to the incident morgue, without processing the scene in a deliberate, 

methodical manner may result in the loss of critical data that facilitates timely positive identification. 

Establishing and maintaining a chain-of-custody of personal effects and other pertinent materials 

verifies the integrity of the evidence. Interruptions to the chain-of-custody of remains and personal 

effects may delay delivery services and may jeopardize personally identifiable information. To 

protect personally identifiable information, access rights to the remains should be limited to those 

who would require it for identification purposes. If such information were accessed by unauthorized 

personnel, it would present a risk of identity theft and medical fraud, and pose other legal concerns. 

The fatality management process will take a substantial amount of time to complete when the fatality 

count is high, human remains are dispersed, difficult to recover or fragmented and/or family 

members are unreachable. A large number of fatalities will result in a challenge for timely 

identification, notification of the next-of-kin, and provision of mortuary services. Furthermore, 

potential issues such as body fragmentation, a limited number of surviving family members, and the 

relocation of family members are also expected to slow the identification process and limit the ability 

to meet this objective. As a result, local, state, tribal, territorial, and insular area governments must 

have a plan and resources in place for the identification of remains regardless of access to surviving 

family members. It may be necessary to leverage the resources of various Federal departments and 

agencies and NGOs to successfully identify and make disposition of the remains. 

Disposition of remains is a sensitive issue that, when not carried out in accordance with cultural 

expectations, can lead to potentially serious legal issues and negatively impact public perception and 

trust. To prevent legal disputes and negative public reactions, local, state, tribal, territorial, and 

insular area governments should have a plan in place that takes into consideration cultural and 

religious requirements for disposition of remains. 

When dealing with the provision of mortuary services across multiple states, it is important to note 

that legal constraints may arise. When local, state, tribal, territorial, and insular area governments 

have exhausted all resources (e.g., personnel, equipment, supplies) within their means, additional 

resources from other parts of the country may be required. In the case of mortuary personnel, states 

may have different legislative requirements that bar medical personnel from providing assistance 

unless they obtain waivers. 

In the case of a mass casualty incident resulting from suspected terrorism or other criminal activity, 

human remains may be deemed of evidentiary value. For suspected or actual terrorist incidents, the 

FBI On-Scene Commander has primary responsibility to conduct, direct, and oversee crime scenes, 

their security, and evidence management, including fatalities management, through all phases of the 

response, managed through a FBI Joint Operations Center. Joint priorities for fatalities management 

should be established between the Prevention and Response mission areas in these cases. As such, 

they will be controlled by law enforcement, crime scene management, the coroner/medical examiner, 

and/or the Armed Forces Medical Examiner System. The remains will be released as soon as 

possible, with a timely and respectful disposition to the families. 

The provision of fatality management services is critical to effective response. Insufficient resources 

in other core capability areas may lead to cascading effects that further inhibit fatality management. 

For example, insufficient transportation capacity will slow/delay the movement of resources and 

remains. It is essential that trained mortuary personnel, equipment, and supplies are able to reach the 
Response Federal Interagency Operational Plan 

C.4-3 

impacted area within a certain time frame. If the resources necessary to complete the fatality 

management tasks are unavailable, there will be delays in the identification of non-survivors, 

successfully identify and make a disposition of the remains., and the ability to provide adequate 

information to survivors and next-of-kin. 

Assumptions 

General assumptions for the Response Federal Interagency Operational Plans (FIOP) have been 

identified in the base plan. Assumptions specific to this core capability include: 

 The movement, identification, and death certification of human remains is almost always under 

the jurisdiction of local, state, tribal, territorial, and insular governments. Due to lack of Federal 

jurisdiction, almost all fatality management support provided by the Federal Government will be 

in support of the local medicolegal jurisdiction. 

 Current fatality management resources are sufficient to care for deceased at current fatality rate. 

The crude death rate in the United States is approximately 806/100,000 population, or about 22 

deaths/million/day. 

 Increase demand for fatality management support to local governments comes from increased 

fatality rate due to either a focal, sudden, catastrophic incident (e.g., transportation accident, 

natural disaster, etc.) or a global, prolonged, chronic increase in fatality rate (e.g., pandemic). 

 Local, state, tribal, territorial, and insular area entities responsible for providing fatality 

management services have a limited local capacity to perform routine fatality management 

beyond current levels and will exhaust their resources requiring additional assistance. The 

Federal Government will have limited mortuary capability to support state requests for mortuary 

resources. Lowering the public expectations and using nontraditional means for disposition (e.g., 

temporary interment) may be necessary. 

 The funeral industry normally interacts with survivors and family members to facilitate the 

identification of deceased, file necessary legal documents, transport remains, return personal 

effects, embalm, casket or cremate, and otherwise arrange and make final disposition. Disruption 

in funeral industrial infrastructure due to loss of power, transportation assets or personnel will 

adversely impact the timely completion of fatality management tasks. 

 Local, state, tribal, territorial, and insular area entities responsible for providing fatality 

management services have a limited local capacity to perform routine fatality management 

beyond current levels and will exhaust their resources requiring additional assistance. 

 Normal procedures for recovery and processing of remains may be modified due to the 

overwhelming number of remains, the condition of remains, or the presence of hazardous 

substances at the scene or on the remains or when a large number of fatalities must be managed 

in a resource scarce environment. 

Highest priority during a response will be to preserve life. Therefore, highest priorities for mass 

fatality response will include: 

 Relieving health care facilities of impediments to patient care caused by fatality management 

demands at their facilities (e.g., increased need to move, manage and store remains at their 

facilities). 

 Mitigating health hazards caused by human remains contaminated with biological, chemical or 

radiological agents. 
Response Federal Interagency Operational Plan 

C.4-4 

 Creating trust in affected populations by demonstrating that response efforts can care for the 

deceased in a culturally sensitive manner. 

 Preserving evidence required for death investigation, when additional lives are in jeopardy. 

Normal procedures for recovery and processing of remains may be modified due to the 

overwhelming number of remains, the condition of remains, the presence of hazardous substances at 

the scene or on the remains, or when a large number of fatalities must be managed in a resource 

scarce environment. 

Mission 

Federal interagency partners will establish and maintain requested recovery operations, morgue 

operations (postmortem activities), Victim identification center Operations (antemortem activities), 

and release of human remains/final disposition and provide counseling for the bereaved. 

Execution 

Concept of Operations 

Phase 1 

All local, state, tribal, territorial, insular area, and Federal entities verify rosters of key fatality 

management personnel and update them with accurate contact information and communications. 

Relations with local, state, tribal, territorial, and insular area fatality management services are 

strengthened. HHS prepares its fatality identification and family support capability with associated 

resources to support state requests for assistance. FEMA’s Logistics Management Directorate (LMD) 

acquires and maintains an inventory of PPE and other fatality management mission-essential 

materials for Federal response, recovery, and mitigation efforts. 

Phase 2 

At the request of the state and when mission-assigned, HHS activates the Fatality Management 

Assistance Team, the Disaster Mortuary Operational Response Teams (DMORT), the Disaster 

Portable Morgue Units, and the victim Information Center Team, and associated equipment and 

supplies needed to support disaster mortuary operations in the impacted area. HHS coordinates with 

local, state, tribal, territorial, and insular area medical examiners or coroners, healthcare facilities and 

funeral industry to gain a shared situational awareness of fatality management requirements. This 

shared situational awareness includes: gathering information on the mortuary services requirements 

based upon the state reported number of fatalities, and assessing the status of mortuary facilities with 

remains requiring identification. The state identifies additional scene investigation personnel, 

remains transportation assets and storage facilities and coordinates with SAR teams for locations of 

fatalities found during response operations. 

HHS identifies personnel through who could provide additional medicolegal death investigation 

personnel and resources, remains transportation and mortuary support, and could fill personnel and 

material requirements through other Federal and agency partners, NGOs, or private sector 

organizations. HHS coordinates with state and local authorities for efficient use of its victim 

identification resources to complement the mortuary resources deployed by local, state, other Federal 

departments and agencies, tribal, territorial, and insular area governments, and private sector 

organizations. 
Response Federal Interagency Operational Plan 

C.4-5 

Phase 3a 

Fatality management operations continue and include sharing information with mass care services for 

the purpose of reunifying family members and caregivers with missing persons/remains. 

When traditional HHS and other Federal agency resources are exhausted, GSA may be tasked to 

provide resource support (e.g., tarps for use as body bags). Additionally, FEMA Acquisitions may be 

tasked to provide personnel support. Additional storage areas such as morgues and funeral homes are 

used to hold remains. Surge storage areas include refrigerated cars and trailers, and dry ice walls. 

Depending on the magnitude of the disaster, temporary interment may be considered. 

Coordinating Structure 

Many ESFs support the Fatality Management Services core capability. The ESFs that perform tasks 

under this core capability are summarized in Figure C.4-1. Specific tasks conducted by these ESFs 

are identified in the Tasks by Phase, by ESF section below. 

Figure C.4-1: Coordination of ESF Support to Fatality Management Services 

ESF #8 provides the primary support to the delivery of this core capability with the support of other 

ESFs. 

Federal departments and agencies support local, state, tribal, territorial, and insular area fatality 

management operations, which include scene management and security, investigations, search, 
Response Federal Interagency Operational Plan 

C.4-6 

recovery, and identification of human remains, establishing a cause and manner of death and 

mortuary services equipment and supplies. 

The local medical examiner/coroner or law enforcement agency have legal authority for conducting 

fatality identification, or assists the lead investigative agency in completing fatality identification, 

determining the cause and manner of death, and managing death certification. In the event of a mass 

fatality incident, the local medicological authority retains responsibility determining the cause and 

manner of death and releases remains and personal effects to authorized individuals for final 

disposition. As the authority for fatality management, local medical examiner/coroner and law 

enforcement retain the authority and responsibility to communicate the status of fatality management 

operations to the public and governmental authorities in charge. No Federal department or agency 

can appropriate these responsibilities. Federal interagency partners may provide support to the 

medical examiner/coroner to accomplish deceased identification and death certification, may not 

assume the authority or speak on behalf of the local jurisdictional authority with responsibility for 

deceased identification and certification. 

If the remains are in contact with hazardous materials, the local jurisdiction coordinates with the 

appropriate state agency to mitigate the hazard before they are collected and processed. Appropriate 

Federal departments can provide guidance and technical assistance. If the fatalities are located within 

a Federal crime scene, the state medical examiner will coordinate with DOJ and the FBI to gain 

access to bodies. All crime scene activity and evidence collection will remain under the control and 

supervision of the appropriate law enforcement agency. 

Local, state, or Federal victim identification centers—a family service facility opened following mass 

fatality incidents to manage missing persons in coordination with ESF #6, medical examiner/coroner 

affairs, provide information, give emotional support, and make available Client Support Services to 

family and friends of victims. HHS coordinates with DOS for communication with foreign embassies 

or consulates regarding the death of foreign nationals in the United States. 

ESFs that provide support to the delivery of the Fatality Management Services core capability are 

included in the following section. 

Fatality Management Services Tasks 

Mission Objectives 

 FM-MO-1: Coordinate planning and operational analysis to deliver fatality management support 

to the affected jurisdictions. (Supports FM-Critical Task-1) 

 FM-MO-2: Procure and employ Federal resources, in coordination with the affected jurisdictions, 

to support fatality management services, including: scene management and security, management 

of hazards to human health associated with remains, support for medicolegal death investigation, 

search, recovery, and identification of human remains, determining a cause and manner of death, 

providing mortuary services personnel equipment and supplies, the reunification of remains with 

loved ones for final disposition of remains, and the provision of counseling services to the 

bereaved. (Supports FM-Critical Task-1, FM-Critical Task-2, and FM-Critical Task-3) 

Phase 1a—Normal Operations 

End State: Federal fatality management plans have been developed and exercised, resources have 

been procured, and inventories have been updated. (Supports FM-MO-1) 
Response Federal Interagency Operational Plan 

C.4-7 

 Tasks by Phase, by ESF 

 ESF #7 

 Order and maintain an inventory of PPE and other fatality management mission essential 

materials and supplies for response, recovery, and mitigation efforts. 

 ESF #8 

 Enhance the preparedness of victim identification and (delete: family assistance) 

resources through planning, training, and exercises. 

 Review and update key fatality management personnel rosters with accurate contact 

information. 

 Plan, train, exercise, and organize to build, sustain, and improve operational capabilities. 

Phase 1b—Elevated Threat 

End State: Fatality management personnel are trained and equipped for deployment. (Supports FMMO-2) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Fatality management caches and support equipment have been readied for deployment and 

appropriate contact has been made with local, state, tribal, territorial, insular area, and Federal 

officials. (Supports FM- MO-1) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Based on preliminary fatality estimates, and initial assessment of healthcare facility, 

medical examiner/coroner capabilities and funeral industry function, Federal fatality management 

resource requirements have been identified. (Supports FM-MO-2) 

 Tasks by Phase, by ESF 

 ESF #7 

 Notify distribution centers to prepare for shipment of fatality management resources to 

the impacted area. 

 ESF #8 

 Activate the headquarters-level ESF #8 coordinator to support disaster mortuary 

operations. 

 Coordinate with ESF #7 and ESF #9 to identify and store fatalities found during response 

operations. 
Response Federal Interagency Operational Plan 

C.4-8 

 Coordinate fatality management resource transportation support with Federal departments 

and agencies if commercial contract carriers are not available. 

 Assist state Department of Health and medical examiner/coroner’s office in determining 

response requirements. 

 Deploy HHS personnel and other Federal personnel and equipment appropriate to the 

response requirements which may include Regional Emergency Coordinators, subject 

matter experts, or mortuary resources. 

 Work with national associations of funeral directors, coroners, and medical examiners to 

call upon these organizations to provide additional personnel surge capacity if requested. 

 ESF #9 

 Integrate fatality management Liaison Officers into the SAR incident management 

structure and coordinate the collection of actionable information which drives future 

(post-rescue) collection and recovery of human remains. 

Phase 2b—Deployment 

End State: Federal operations have been coordinated with and integrated into the affected 

jurisdictions and fatality management resources have been mobilized. (Supports FM-MO-1, FMMO-2) 

 Tasks by Phase, by ESF 

 ESF #3 

 Manage debris to facilitate fatality recovery efforts, to include establishing a system for 

sorting debris and recovering human remains. 

 ESF #5 

 Activate ESF #8 at the national and regional level to provide coordination and technical 

assistance. 

 ESF #8 

 Secure transportation to deploy the Disaster Portable Morgue Units. 

 Deploy, employ, and maintain shared situational awareness on DMORT, Disaster 

Portable Morgue Units, and other mortuary assistance teams. 

 Deploy mortuary caches and determine the appropriate placement of mortuary support. 

 Coordinate with local, state, tribal, territorial, and insular area partners to determine 

changes in capabilities and anticipated shortfalls. 

 Determine if additional resources are needed and identify and deploy appropriate 

personnel, as requested. 

 Coordinate with additional resources from local, state, tribal, territorial, and insular area 

authorities, private sector organizations, and EMAC. 

 Notify FEMA of resource shortfalls, as required. 

 Provide technical guidance regarding methods to reduce the hazard presented by 

chemical-, biological-, or radiological-contaminated human remains (when indicated and 

possible). 
Response Federal Interagency Operational Plan 

C.4-9 

 Coordinate logistical support for fatality management personnel to support field 

operations. 

Phase 2c—Sustained Response 

End State: Additional mortuary support resource and personnel requirements are identified and 

fulfilled to maintain a sustained response. (Supports FM-MO-1, FM-MO-2) 

 Tasks by Phase, by ESF 

 ESF #3 

 Provide technical engineering assistance for temporary morgues and contract support for 

the construction of temporary morgues. Assist with ground preparation for temporary 

interment of remains, when large numbers of fatalities occur and if applicable. 

 ESF #8 

 Maintain shared situational awareness and determine the need to rotate mortuary teams 

and other fatality management resources to allow personnel to rest and maintain 

capability. 

 Identify areas where objectives have been achieved and reposition or demobilize 

personnel when appropriate. 

 Provide reports on the status of fatality management operations and objectives to 

maintain a shared situational awareness and contribute to the common operating picture. 

 Coordinate with additional out-of-state resources provided through EMAC and develop a 

strategy for augmenting or replacing the current Federal Government resources employed 

in the response. 

 ESF #13 

 Provide necessary requested resources for scene and facility security for fatality 

management operations. 

 In jurisdictions where law enforcement delivers services in fatality management, provide 

necessary requested resources to augment law enforcement support to fatality 

management tasks (e.g., fingerprinting, DNA analysis, antemortem data, remains 

identification, etc.). 

Phase 3a—Short-term Recovery 

End State: Fatality management operations continue to support remains recovery, investigation, and 

identification of remains, cause and manner of death determination, release of remains for final 

disposition and the provision of counseling services to the bereaved. (Supports FM-MO-2)

 Tasks by Phase, by ESF 

 ESF #6 

 Provide support and funding for crisis counseling services to the bereaved as well as for 

local, state, tribal, territorial, and insular area crisis counseling programs. 

 Provide transportation and human services for survivors reuniting with deceased family 

members.
Response Federal Interagency Operational Plan 

C.4-10

 ESF #8 

 Continue to support the local jurisdiction with Federal fatality management services. 

Federal support may conclude once the local jurisdiction has rebuilt their capability and 

can assume full responsibility for fatality management services. 

 ESF #13 

 Continue to support the local jurisdiction and fatality management operations security, 

investigations, and remains identification activities. 

Administration and Support 

Each Federal department and agency will continue to maintain its roles and responsibilities under 

Federal laws and regulations. Each department and agency will adhere to individual activation, 

notification, deployment, and deactivation procedures. 
Response Federal Interagency Operational Plan 

C.5-1 

Appendix 5 to Annex C: Infrastructure Systems 

Purpose 

The purpose of this appendix is to describe the delivery of the Infrastructure Systems core capability. 

The Infrastructure Systems core capability stabilizes critical infrastructure functions, minimizes 

health and safety threats, and efficiently restores and revitalizes systems and services to support a 

viable, resilient community. 

The Infrastructure Systems (IS) critical tasks are as follows: 

 IS-Critical Task-1. Decrease and stabilize immediate infrastructure threats to the affected 

population, to include survivors in the heavily-damaged zone, nearby communities that may be 

affected by cascading effects and infrastructure systems support facilities and evacuation 

processing centers with a focus on life-sustainment and congregate services. 

 IS-Critical Task-2. Reestablish critical infrastructure within the affected areas to support 

ongoing emergency response operations, life-sustainment, community functionality, and a 

transition to recovery. 

Situation 

Damage to infrastructure systems in the impacted area will be severe. The restoration of critical 

infrastructure following an incident is essential to the recovery process. When dealing with 

infrastructure impacted by a disaster, the primary goal is to stabilize essential functions, minimize 

health and safety threats, and effectively restore/revitalize systems and services to support a viable, 

resilient community. This includes facilitating the repair/replacement of infrastructure for oil, gas, 

electricity, telecommunications, drinking water, wastewater (sewage), transportation and other 

services. The reestablishment of critical infrastructure within the affected areas serves to support 

ongoing emergency response operations, life-sustainment, community functionality, and the 

transition to recovery. Because infrastructure systems are inherently interconnected, the impacts and 

considerations for response often extend beyond the political or geographic boundaries of the impact 

area. The interdependent nature of infrastructure systems, and the complexity of impacts, will require 

coordination among a broad range of stakeholders to assess, prioritize, secure and restore affected 

systems. 

The ability to efficiently restore infrastructure and services to support a viable, sustainable 

community will not only aid in the recovery process, but also serve to improve resilience to and 

protection from future hazards. These results may be achieved through improved planning and 

efficiency during incident response. To ensure the restoration of robust infrastructure systems, it is 

necessary to decrease and stabilize immediate infrastructure threats to the affected population to 

include survivors in the heavily-damaged zone, nearby communities that may be affected by 

cascading effects, mass care support facilities, and evacuation processing centers. 

If infrastructure functionality is not restored in a timely manner, negative impacts on response 

activities occur. When an incident occurs, it is imperative that infrastructure services are quickly 

restored. When this does not happen, survivors in the impacted area may leave en masse. An exodus 

risks straining an already damaged infrastructure and, in some cases, may prevent responders from 

clearing away debris from transportation routes. This produces cascading effects by impeding the 

ability to bring in much needed equipment, supplies, and responders to the impacted area. 
Response Federal Interagency Operational Plan 

C.5-2 

Additionally, displaced populations moving to areas outside the impacted area require those 

unaffected regions to support and care for disaster casualties. 

Another risk associated with the deterioration of infrastructure systems is the potential for resource 

shortages. To mitigate this risk, essential resources are prioritized. The prioritization of critical 

resources allows them to be conserved and stretched by restricting allocation to the most critical 

users (e.g., fuel for emergency responders, priority telecommunications service). Damage to 

electrical and communication infrastructure is of particular concern as communication is paramount 

during a disaster and is not sustainable without a lasting power supply. Without clear, sustainable 

lines of communication and the power supply to support them, the recovery process suffers as 

responders are unable to effectively organize their operations. As a result, the restoration of reliable 

and sustainable power is a priority in all response operations. 

It is necessary to maintain open lines of communication between private and public sector entities. 

Representatives from government and the private sector must be able to communicate and 

collaborate with one another to prioritize essential resources and restoration requirements. Issues 

with communications equipment between the private and public sectors would not only impede the 

restoration of the infrastructure systems, but it would also have an impact on the provision of 

resources and support to individuals with access and functional needs, such as individuals with 

disabilities. 

To mitigate risks that are inherent in the revitalization of infrastructure systems, plans must be 

developed for implementation should a disaster occur. The development of a plan for restoring and 

redeveloping community infrastructure that contributes to resiliency, accessibility, and sustainability 

is an integral part of the restoration of affected infrastructure and can help mitigate potential risks. It 

is vital to provide those systems that meet the community needs such as basic utilities (water and 

power) as quickly as possible while minimizing service disruption during restoration. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. Assumptions 

specific to this core capability include: 

Federal resources will support the restoration of essential infrastructure as emergency needs are met. 

Mission 

Federal interagency partners will decrease immediate critical infrastructure threats, stabilize 

infrastructure, and decrease impacts within the affected areas to support ongoing emergency response 

operations, life sustainment, community functionality, and a transition to long-term recovery. 

Execution 

Concept of Operations 

Critical infrastructure—those assets, systems, and networks that underpin American society—is 

inherently interconnected, and the community involved in managing risks to critical infrastructure is 

wide-ranging, composed of partnerships among owners and operators: local, state, tribal, territorial, 

and Federal governments; regional entities; non-profit organizations; and academia. Managing the 

response effort to assess, prioritize, secure and restore infrastructure from the impact of threats and 

hazards to physical and cyber-critical infrastructure requires an integrated approach across this 

diverse community. 
Response Federal Interagency Operational Plan 

C.5-3 

The Nation’s critical infrastructure is composed of 16 sectors that comprise assets primarily owned 

and operated by the private sector. Response is focused on the immediate restoration of these critical 

assets to facilitate effective response activities, protect survivors, and allow for a transition to 

recovery. As activities transition from response, the Recovery mission area integrates the capabilities 

of the Federal Government to support local, state, tribal, territorial, and insular area governments and 

other private infrastructure owners and operators in their efforts to achieve long-term recovery goals 

relative to the community’s current and projected demands on their infrastructure system. During 

steady-state, the Protection mission area supports infrastructure systems and provides vital 

information and support during response activities. 

Across all incident response phases, the infrastructure support mission follows four primary 

functions: 

1. Assess 

2. Prioritize 

3. Secure 

4. Restore 

Infrastructure systems operations during incident response are carried out according to the ESF 

structure within incident operations. The infrastructure coordination and partnership structures 

established within the National Infrastructure Protection Plan (NIPP) support the assessment and 

prioritization of infrastructure systems through planning, analysis, and situational awareness through 

the mechanisms described in this appendix. The NIPP partnership structure provides a connection 

point between steady-state security and resilience activities and response operations. 

This appendix sets forth the structure and processes used to manage response and short-term 

recovery activities, with regard to infrastructure systems, in the event of a disaster or emergency. It 

establishes the operational strategy and logistical procedures necessary to assess, prioritize, restore 

and secure infrastructure in a timely and organized fashion following a significant disaster or 

emergency. The overarching goal is to promote coordination of response activities, responsibilities, 

and resources and detail the associated tasks, to ensure the safety of personnel, facilities, and 

equipment. The resulting approach establishes connections between infrastructure security and 

resilience partnerships and capabilities, and response organizations and functions, and is flexible and 

scalable to ensure the continued performance of essential functions. 

This appendix sets forth the structure and processes used to manage response and short-term 

recovery activities, with regard to infrastructure systems, in the event of a disaster or emergency. It 

establishes the operational strategy and logistical procedures necessary to respond to, and recover 

from, a significant disaster or emergency in a timely and organized fashion. The overarching goal is 

to promote coordination of response activities, responsibilities, and resources and detail the 

associated tasks, to ensure the safety of personnel, facilities, and equipment. The resulting approach 

is flexible and scalable to ensure the continued performance of essential functions. 

Phase 1 

Restoring and securing infrastructure systems is paramount to response efforts for any given incident, 

so advance planning and preparation are critical. Federal departments and agencies regularly 

coordinate and support infrastructure risk and vulnerability assessments among local, state, tribal, 

territorial, and insular area authorities and the private sector. This is done in cooperation with the 

Protection mission area, which secures, to the extent possible, public and private networks and 
Response Federal Interagency Operational Plan 

C.5-4 

critical infrastructure, based on vulnerabilities identified through risk assessments, mitigation, and 

incident response capabilities. 

Federal departments and agencies, and the private sector implement structural and nonstructural 

mitigation procedures, including the deployment of protective measures to eliminate or minimize risk 

to infrastructure. Additionally, Federal departments and agencies coordinate emergency contracting 

support for lifesaving and life-sustaining services including the provision of potable water, 

emergency power, and other emergency commodities and services. Private sector owners and 

operators as well as local, state, tribal, territorial, and insular area governments drive prioritizations 

for their jurisdictions. The applicable Federal agency can provide advice to or receive advice from 

private sector owners and operators and local, state, tribal, territorial, and insular area governments as 

to why certain infrastructure may or may not be a priority, but otherwise, play no part in the 

prioritization process. If they are not able to prioritize the restoration process, the Federal 

Government can coordinate with them to help accomplish it. The range of infrastructure sector 

coordination and risk management under the NIPP further guides the national effort to manage 

infrastructure risks, and sets the operational environment for response. 

In support of this effort, the DHS National Protection and Programs Directorate provides Homeland 

Infrastructure Foundation-level Data, to augment State GIS for pre-incident assessments. The data is 

used to identify strategic locations when traditional geographic identifiers are unavailable. 

Phase 2 

Federal departments and agencies support the restoration of critical infrastructure by coordinating 

response efforts among local, state, tribal, territorial, and insular area authorities and the private 

sector. For example, they provide assistance in the monitoring and stabilization of damaged 

structures and the demolition of structures designated as immediate hazards to public health and 

safety. Additionally, in conjunction with local, state, tribal, territorial, and insular area authorities, 

Federal departments and agencies provide emergency repair of damaged infrastructure and critical 

public facilities (e.g., temporary power, emergency water, sanitation systems) as necessary. 

FEMA and appropriate Federal partners coordinate individual industry/sector non-technical 

assessments (e.g., Office of Cyber and Infrastructure Analysis assessments, National Infrastructure 

Simulation Analysis Center assessments) and disseminate information, as required, to facilitate 

information-sharing. In addition, some Federal departments and agencies also develop technical 

assessments and provide solutions for complex restoration issues. The NIPP coordination and 

partnership structures support the assessment and prioritization of infrastructure systems conducted 

during incident operations. 

Local, state, tribal, territorial, and insular area officials, in coordination with Federal interagency 

partners, prioritize the allocation, distribution, and installation of temporary generators and identify 

critical infrastructure where emergency power is required to support public health, safety, and 

sustainment. During the incident, FEMA utilizes public information campaigns to inform senior 

leaders and the general public of locations (e.g., shelters, hospitals) where temporary power 

generators will be available for people with specific needs (e.g., individuals with access and 

functional needs, such as individuals with disabilities). 

Coordinating agencies activate the appropriate existing assessment capabilities, management teams, 

and contracts for the procurement, installation, operations and maintenance of equipment to support 

response efforts. DHS Office of Infrastructure Protection, in coordination with all applicable Federal 

departments and agencies, the JFO, and local, state, tribal, territorial, and insular area sector-specific 

officials, coordinates immediate and comprehensive, long-term damage assessments. 
Response Federal Interagency Operational Plan 

C.5-5 

Phase 3a 

Robust and accessible communications between the Federal Government and all other partners are 

maintained throughout the recovery process to ensure ongoing dialogue and information sharing. 

During this phase, coordinating agencies participate in post-incident assessments of public works and 

infrastructure to help determine critical needs and potential workloads to minimize the impact of 

service disruptions and ensure that infrastructure systems are fully recovered in a timely and efficient 

manner. 

The Infrastructure Systems RSF is a complement to the response and short-term recovery efforts that 

take place under the NRF. As the ESFs demobilize, the Infrastructure Systems RSF team will 

facilitate long-term recovery operations. The intent of the Infrastructure Systems RSF is to ensure a 

seamless transition between the response and recovery phases. Upon activation, Infrastructure 

Systems RSF members should deploy early in the response phase to work with their ESF 

counterparts to shape long-term recovery actions. The Infrastructure Systems RSF focuses on four 

key ESFs during response operations: ESF #1, ESF #2, ESF #3, and ESF #12. 

NIPP partnership and coordination structures continue to provide a conduit for supporting ESF and 

RSF operations with situational awareness, sector-specific and cross-sector analysis and information, 

and tailored analytic products in support of secure and resilient recovery efforts. 

Coordinating Structure 

Many ESFs support the Infrastructure Systems core capability. The ESFs that perform tasks under 

this core capability are summarized in Figure C.5-1. Specific tasks conducted by these ESFs are 

identified in the Tasks by Phase, by ESF section below. 
Response Federal Interagency Operational Plan 

C.5-6 

Figure C.5-1: Coordination of ESF Support to Infrastructure Systems 

The Primary Agencies overseeing infrastructure systems operations are DHS, FEMA, DoD/USACE, 

DOE, and DOT. Infrastructure systems consist of private sector and public sector or governmentowned assets, systems or networks which are so vital that their incapacity or destruction would not 

only have a debilitating impact on the immediate community’s ability to function, but may also have 

state, regional, national, or international consequences, which could include impacts to national and 

economic security, and public health and/or safety. 

ESFs are the coordination structure for response operations, but they are supported by other essential 

coordination structures that: 

 Align infrastructure partnership and coordination to assessment and prioritization efforts 

 Support public engineering services that restore and secure infrastructure systems 

 Engage private sector partners in response operations. 

Infrastructure Sector Support 

The National Infrastructure Protection Plan establishes a partnership structure for coordination 

among infrastructure partners and a risk management framework to identify critical infrastructure 

whose loss or compromise would result in the degraded provision of essential services, such as water 

and power, to the public. 
Response Federal Interagency Operational Plan 

C.5-7 

The DHS National Operations Center (NOC) serves as the primary National-level hub for domestic 

situational awareness, a common operating picture, information fusion, information sharing, 

communications, and operations coordination pertaining to the prevention of terrorist attacks and 

domestic incident management. As the infrastructure coordination element of the NOC, the National 

Infrastructure Coordinating Center (NICC) receives situational, operational, and incident-related 

information regarding the status of the Nation’s critical infrastructure sectors during incidents and 

collects input from every Sector-Specific Agency (SSA) that is consolidated into a comprehensive 

report and included in National Level Reporting (NLR) and the NOC Senior Leader Brief (SLB). 

The Office of Cyber and Infrastructure Analysis (OCIA) Integrated Analysis Cell (IAC), which is colocated with the NICC Watch and Warning, serves as the integration and analysis function for critical 

infrastructure. The IAC supports the NICC and the National Cybersecurity and Communications 

Integration Center (NCCIC) with security and resilience strategic analysis to better understand and 

address incidents, threats, and emerging risks to critical infrastructure. 

SSAs conduct outreach to critical infrastructure stakeholders24 during incident management 

operations to collect and share information as part of NLR requirements. DHS/NPPD is the SSA for 

six of the 16 critical infrastructure sectors (Chemical, Commercial Facilities, Critical Manufacturing, 

Dams, Emergency Services, and Nuclear Reactors, Materials, and Waste). DHS components are the 

SSAs (or co-SSAs) for four sectors (Communications, Government Facilities, Information 

Technology, and Transportation Systems). Other Federal departments and agencies are the SSAs (or 

co-SSAs) for the remaining six sectors (Defense Industrial Base, Energy, Financial Services, Food 

and Agriculture, Healthcare and Public Health, and Water and Wastewater Systems). Each SSA is 

responsible for maintaining situational awareness, assessing and analyzing critical infrastructure data 

related to its sector, sharing pertinent information with sector partners, sharing data (as appropriate), 

and responding to Requests for Information (RFI) and Requests for Assistance (RFA). 

Critical infrastructure security and resilience includes collaboration with local, state, tribal, territorial, 

and Federal government entities, and private critical infrastructure owners and operators to support 

information sharing by disseminating relevant critical infrastructure data to incident management and 

critical infrastructure partners in the public and private sectors. As outlined in the NIPP, IP manages 

an extensive partnership network within the Federal Government and between the Government and 

private sector critical infrastructure partners, through sector and cross-sector coordinating structures. 

DHS, private critical infrastructure owners and operators, coordinating councils, and informationsharing organizations (such as private sector Information Sharing and Analysis Centers [ISAC]) 

engage in intergovernmental and public-private information sharing and cooperation across the 

spectrum of incident management activities. 

Table C.5-1 summarizes the alignment of sector coordination structures from the NIPP to ESFs and 

RSFs. The sector coordination structure developed under the NIPP supports the ESF structure and 

does not duplicate function or responsibility. 

Sector Specific Agencies (SSA) that correspond to ESFs (e.g., the Energy sector) typically conduct 

their own analysis, and provide situational awareness and planning support through their ESF 

responsibilities—however, the NIPP sector coordination structures provide cross-sector and private 

sector coordination in support of response planning. 

 

24 For the remainder of the document, “critical infrastructure stakeholders” will be used to indicate local, state, tribal, 

territorial, and Federal governments and private, critical infrastructure owners and operators. 
Response Federal Interagency Operational Plan 

C.5-8 

Table C.5-1: Infrastructure Sector Coordination and National Preparedness 

Sector SSA ESF RSF Information Sharing Advisory 

Council

Sector Coordinating 

Council

Gov. 

Coordinating 

Council

Regional 

Consortia

Chemical DHS #10 IS None yes 

Critical Infrastructure Cross Sector Council 

yes 

Council Council Federal Senior Leadership SLTT Government Coordination Federal Consortium Coordinating Council 

Commercial 

Facilities 

DHS none Real Estate ISAC yes yes 

Communications DHS #2 Telecom ISAC yes yes 

Critical 

Manufacturing 

DHS None Supply chain ISAC yes yes 

Dams DHS #3 none yes yes 

Defense Industrial 

Base 

DoD None none yes yes 

Emergency Services DHS #4, #5, 

#10, #13 

Emergency Management 

and Response ISAC 

yes yes 

Energy DOE #12 Electricity Sector ISAC, NERC yes yes 

Financial Services Treasury None Econ Financial Services ISAC Financial 

Services-Special Operations Center 

Uses separate 

coordinating 

entity 

yes 

Food & Agriculture USDA #11 IS none yes yes 

Government 

Facilities 

GSA/DHS None none none yes 

Healthcare & 

Public Health 

HHS #6, #8 HSS Healthcare ISAC yes yes 

Information 

Technology 

DHS None IS Information Technology ISAC yes yes 

Nuclear Reactors, 

Materials, and Waste 

DHS #12 none yes yes 

Transportation 

Systems 

DHS #1 Surface Transportation ISAC, 

Public Transit ISAC, Maritime ISAC 

yes Yes 

Water and 

Wastewater Systems 

EPA #3 Water ISAC yes Yes 

Each of the “lifeline functions” identified in the NIPP corresponds by design to an ESF. These ESFs 

serve as the principle analytic and operational functions for those infrastructure sectors and lifeline 

functions. The NICC serves as a reachback capability to support cross-sector assessment and analysis 

and to provide sector-specific analysis for sectors not directly aligned to an ESF, as well as to 

provide specialized support to ESFs, providing a connection to private sector, and sector coordination 

structures under the NIPP.25

Table C.5-2: NIPP Lifeline Functions 

Lifeline Function ESF

Communications ESF #2

Energy ESF #12

Transportation ESF #1

Water ESF #3, ESF #12

25 NIPP 2013: Partnering for Critical Infrastructure Security and Resilience 
Response Federal Interagency Operational Plan 

C.5-9 

As described in Figure C.5-2 below, the NIPP coordination structures prov

National Infrastructure Coordination (NICC)

National Infrastructure 

Coordination Center

Sector Specific Agency POCs

Critical Infrastructure Crisis 

Action Team

Sector Coordinating Councils

Government Coordinating 

Councils

Information Sharing and 

analysis Centers

MACS/Incident Support

Situational 

Awareness

Resource 

Support Planning

Center and 

Staff Support

Infrastructure 

Liaison

Emergency Support Functions and other coordination 

structures 

State Emergency 

Operations Center

Local Emergency 

Operations Center

Incident Command 

Post Facility

Infrastructure Liaison 

Deputy

Unified Coordination 

Staff

Unified Coordination Group

Protective Security Advisor

The coordination structures 

maintained under the National 

infrastructure Protection Plan (NIPP) 

provide a mechanism for crosssector, coordinated information 

support for both situational 

awareness and planning efforts 

during response. Information 

requests and the development of 

incident-specific analysis contribute 

to the assessment, prioritization, 

restoration, and protection of 

infrastructure systems. 

PSAs are field-deployed infrastructure 

protection experts. PSAs serve as 

incident management personnel and 

liaisons in state and local EOCs, and 

coordinate the provision of situational 

awareness and analytic support. 

The Infrastructure Liaison serves as 

the principal advisor to the UCG 

regarding all national, regional, and 

cross-sector critical infrastructurerelated issues, including 

recommendations on the 

prioritization of critical infrastructure 

within the affected area. 

During incidents or events resulting 

in significant impacts to critical 

infrastructure, the NICC activates a 

Critical Infrastructure Crisis Action 

Team (CI–CAT) that provides incident

support for situational awareness 

and planning. The NICC continues to 

monitor critical infrastructure at the 

national level. The CI–CAT responds 

to incident-specific requests, collects

coordinates, and disseminates 

critical infrastructure incident 

information and analysis to DHS, 

NPPD, and IP leadership, as well as 

critical infrastructure partners.

, 

Command Staff

ide support to assessment 

and prioritization. 

Figure C.5-2 Infrastructure Information Coordination 

The following activities are performed by DHS in support of infrastructure systems: 
Response Federal Interagency Operational Plan 

C.5-10

 Deploy and employ infrastructure support specialists to the JFO(s) and state EOCs, as required,

and work in coordination with relevant SSAs to assist with prioritization and provide shared

situational awareness.

 The Infrastructure Liaison is the senior National Protection and Programs Directorate

infrastructure representative to the JFO’s UCG and serves as the principal advisor to the FCO on

all critical infrastructure-related issues. The Infrastructure Liaison’s primary missions are to

provide the FCO with a clear picture of the status of critical infrastructure in the affected region

and provide prioritized recommendations regarding affected or vulnerable critical infrastructure

in support of response operations.

 Provide support to aid restoration operations based upon the priorities provided by affected local,

state, tribal, territorial, and insular area partners.

 Determine the need for additional waivers and issue waivers to specific industries, consistent

with applicable laws and regulations, as necessary to expedite facility restoration.

 Provide infrastructure information and analysis to support assessment prioritization, restoration

and security of infrastructure.

The following activities are performed by DHS/Office of Infrastructure Protection in support of 

infrastructure systems: 

 Deploy and employ DHS Protective Security Advisors and Infrastructure Liaisons to the JFO(s)

and state EOCs, as required, and work in coordination with relevant SSAs to assist with

prioritization and provide shared situational awareness.

 The Infrastructure Liaison is the senior National Protection and Programs Directorate/Office of

Infrastructure Protection representative to the JFO’s UCG and serves as the principal advisor to

the FCO on all critical infrastructure-related issues. The Infrastructure Liaison’s primary

missions are to provide the FCO with a clear picture of the status of critical infrastructure in the

affected region and provide prioritized recommendations regarding affected or vulnerable critical

infrastructure in support of response operations.

 Provide support to aid restoration operations based upon the priorities provided by affected local,

state, tribal, territorial, and insular area partners.

 Determine the need for additional waivers and issue waivers to specific industries, consistent

with applicable laws and regulations, as necessary to expedite facility restoration.

 DHS also manages infrastructure asset lists and analytic tools to support assessment and

prioritization of impacted infrastructure. DHS also develops national-level priorities for

restoration, security of infrastructure, and recommendations for application or other highdemand/low-density assets to secure and reconstitute critical infrastructure impacted by the

incident.

Restoration of Infrastructure through Private Sector Collaboration 

Through ongoing planning and coordination, the private sector provides critical information to local, 

state, tribal, territorial, insular area, and Federal entities for incident-action planning and decisionmaking processes. Private sector mutual aid and assistance networks also facilitate the sharing of 

resources to support response and recovery. Water and Wastewater Agency Response Networks 

provide emergency aid and assistance in the form of personnel, equipment, materials, and other 

associated services from other water and wastewater utilities. DOE facilitates the restoration of 

damaged energy systems and components through the ESF #12 structure when activated by the 
Response Federal Interagency Operational Plan 

C.5-11

Secretary of Homeland Security for incidents requiring a coordinated Federal response. DOE also 

collaborates with the private sector, which owns and/or operates a large proportion of the Nation’s 

infrastructure. Coordination with the private sector is key to ensuring the rapid restoration of 

infrastructure-related services. 

ESF #12 is an integral part of the larger DOE responsibility of maintaining continuous and reliable 

energy supplies for the United States through preventive measures and restoration and stabilization 

actions. DOE collects, evaluates, and shares information on energy system damage and estimations 

on the impact of energy system outages within affected areas. Additionally, they provide information 

concerning the energy restoration process such as projected schedules, percent completion of 

restoration, and geographic information on the restoration. They also provide technical expertise to 

the utilities, conducts field assessments, and assists government and private sector stakeholders to 

overcome challenges in restoring the energy system. 

Coordination of Public Engineering Services 

DHS is responsible for coordinating the overall national effort to protect critical infrastructure 

including developing and implementing comprehensive risk management methodologies, crosssector and cross-jurisdictional guidance, and recommending performance metrics and criteria across 

sectors.26 Federal departments and agencies provide vital support consistent with their designated 

functions as ESF primary, supporting or coordinating agencies. When multiple infrastructure sectors 

are impacted, DHS may coordinate Federal Government capabilities to support local, state, tribal, 

territorial, and insular area governments and other infrastructure owners and operators’ efforts to 

achieve recovery goals related to the public engineering of the Nation’s infrastructure systems.

The Federal Government response efforts are coordinated among various departments and agencies 

to facilitate the delivery of services, technical assistance, engineering expertise, construction 

management, and other support to prepare for, respond to, and/or recover from a disaster or an 

incident requiring a coordinated Federal response. Private sector critical infrastructure owners and 

operators are responsible at the corporate and individual facility levels for business continuity 

planning, security and preparedness activities. 

Transportation Infrastructure 

DOT provides technical expertise and assistance for repair and restoration of transportation 

infrastructure (e.g., highways, bridges, tunnels, transit systems, port facilities, and railways) and 

provides advice and assistance on the transportation of contaminated materials. In addition, DOT 

provides engineering personnel and support to assist in damage assessment, structural inspections, 

debris clearing, and restoration of the Nation’s transportation infrastructure. DOT also administers 

special funding that can be used for repair or reconstruction of major highway facilities as well as 

grant programs for transit systems and railroads that could be used for repair and rehabilitation of 

damaged infrastructure. 

ESFs that provide support to the delivery of the Infrastructure Systems core capability are included in 

the following section. 

 

26 National Response Framework—Critical Infrastructure Support Annex, April 2012. 
Response Federal Interagency Operational Plan 

C.5-12

Infrastructure Systems Tasks 

Mission Objectives 

 IS-MO-1: Perform site surveys and assessments to inform resource requests, conduct analysis, 

and determine the prioritization of infrastructure restoration. (Supports IS-Critical Task-1) 

 IS-MO-2: Coordinate with public and private sector infrastructure owners, operators, and 

partners to prioritize restoration activities, based on the degradation to essential infrastructure and 

the resources required to repair infrastructure. (Supports IS-Critical Task-2) 

 IS-MO-3: Conduct planning in coordination with the public and private sectors to support 

incident objectives for stabilization and repair of essential infrastructure. (Supports IS-Critical 

Task-2) 

Phase 1a—Normal Operations 

End State: During the Federal recovery support operation, all public information and 

communications are coordinated through ESF #15 (which supports all RSFs). (Supports IS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #3 

 Review and update key personnel rosters with accurate contact information (e.g., FCOs, 

NRCC, RRCC, JFO, and special teams). 

 Continually reach out to other local, state, tribal, territorial, insular area, and Federal 

departments and agencies to strengthen communications and relations, in collaboration 

with DHS/Office of Infrastructure Protection. 

 Provide mechanisms for vertical and horizontal coordination, communications, and 

information-sharing on a standardized platform accessible by all partners. 

 Order and verify inventory levels of PPE and other mission-essential materials and 

supplies for response, recovery, and mitigation efforts. 

 Reduce or eliminate long-term risk from hazards on the existing built environment and 

future construction. 

 Develop focused strategies based on the most common impacts of natural disaster. 

 Review and enter into appropriate IAAs to provide Federal-to-Federal support for animal 

carcass removal, transportation, and disposal. 

 ESF #5 

 Coordinate assessment and prioritization support through the NIPP coordination structure 

(infrastructure liaisons and protective security advisors). 

 ESF #12 

 Provide analysis and modeling products, through DOE, depicting the potential impact to 

the electric power, oil, natural gas, and coal infrastructures; analysis of market impacts to 

the economy; as well as estimate of the effects that the disruption will have on other 

critical infrastructure. 
Response Federal Interagency Operational Plan 

C.5-13

Phase 1b—Elevated Threat 

End State: Technical personnel and equipment have been identified and inventoried. Operational 

plans have been refined based on current information. (Supports IS-MO-3) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Response actions and resources have been prioritized based on existing catalogs of preidentified critical infrastructure. (Supports IS-MO-1, IS-MO-2) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Based on preliminary information about the incident’s impacts on critical infrastructure, 

immediate resource needs have been identified and coordinated across the public and private sectors. 

Technical personnel have been readied for deployment. (Supports IS-MO-2, IS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #1 

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

infrastructure. 

 Identify temporary alternative transportation solutions implemented by others when 

systems or infrastructure are damaged, unavailable, or overwhelmed. 

 ESF #3 

 Activate and deploy teams to conduct impact assessments for private/public sector assets, 

as requested. 

 Determine prioritization of repairs with affected local, state, tribal, territorial, and insular 

area entities. 

 Provide shared situational awareness and prioritized recommendations concerning the 

recovery and restoration of the associated critical infrastructure sectors through the 

Infrastructure Liaison. 

 Coordinate with other local, state, tribal, territorial, insular area, and Federal departments 

and agencies to determine resource allocation and conduct operations supporting the 

overall shared situational awareness. 

 Notify, alert, and/or initiate deployment actions for ESF #3 Management Team and 

Planning Response Teams for debris, temporary power, temporary roofing, infrastructure 

assessment, and structural specialists’ cadre.

 Activate USACE Power Generation Teams. 

 Provide emergency repair of damaged public infrastructure and critical facilities. 
Response Federal Interagency Operational Plan 

C.5-14

 Provide assistance in the monitoring and stabilization of damaged structures and the 

demolition of structures designated as immediate hazards to public health and safety. 

 Gather, assess, and share information on energy system damage and estimations on the 

impact of energy system outages within affected areas. 

 ESF #5 

 Coordinate assessment and prioritization support through the NIPP coordination structure 

(infrastructure liaisons and protective security advisors). 

 ESF #7 

 Activate fuel support contract in anticipation of the establishment of FEMA ISBs/staging 

areas. 

 Determine location of FEMA Base Camp(s) and activate National Base Camp Contract. 

 Activate support contracts for fuels and water. 

 Inventory and identify all large-space facilities or structures near the incident venue(s) 

that could be made available as temporary shelters, temporary morgues, or to support 

mass casualty medical operations. 

 Provide information on available lease land (commercial) and Federal Governmentowned properties available to support response requirements. 

 ESF #8 

 Assess and prioritize healthcare facilities’ (including facilities used for acute and longterm care as well as mental health facilities) reliance on power, water, and other 

infrastructure systems for sustaining ongoing operations. 

 ESF #12 

 Assess the energy impact of the incident, provide analysis of the extent and duration of 

energy shortfalls, and identify requirements to repair energy systems. 

 Coordinate preliminary damage assessments in the energy sector to determine the extent 

of the damage to the infrastructure and the effects of the damage on the regional and 

national energy system. 

Phase 2b—Deployment 

End State: Technical personnel have been deployed to the impact area to conduct damage 

assessments and site surveys. Operational plans have been updated and coordinated with the public 

and private sectors to stabilize and repair critical infrastructure. (Supports IS-MO-1, IS-MO- 2, ISMO-3) 

 Tasks by Phase, by ESF 

 ESF #2 

 Restore communications infrastructure and provide expertise to coordinate the location of 

additional capabilities for response operations (e.g., electricity). 
Response Federal Interagency Operational Plan 

C.5-15

 ESF #3 

 Provide engineering and contracting/procurement personnel and equipment to assist in 

emergency removal of debris, demolition, and temporary repair of essential public 

facilities, water supply, and sanitation. 

 Plan, coordinate, and provide emergency contracting and technical assistance for animal 

carcass removal, transportation, and disposal support, as needed. 

 ESF #5 

 Activate ESF #3 at the national and regional level to provide coordination and technical 

assistance. 

 Coordinate assessment and prioritization support through the NIPP coordination structure 

(infrastructure liaisons and protective security advisors). 

 Plan, train, exercise, and organize to build, sustain, and improve operational capabilities. 

 ESF #7 

 Provide logistical support to fire and other first response services. 

 Prepare and stage power-pack generators. 

 Deploy Defense Logistics Agency fuel support to FEMA ISBs/staging areas. 

 ESF #10 

 Assess the nature and extent of contamination for incidents where infrastructure is 

contaminated by oil or hazardous materials. 

 ESF #11 

 Monitor response operations to protect sensitive natural and cultural resources, including 

historic infrastructure that is eligible for or listed on the National Register of Historic 

Places 

 Provide FEMA and other agencies with technical guidance and best management 

practices on mitigating impacts of operations and recommend response actions to 

minimize damage to NCH. 

 Coordinate with ESF #3 on the removal of debris (when classified as debris) affecting 

NCH. 

 Coordinate with ESF #10 on the removal of debris affecting NCH when that debris is 

contaminated by oil or hazardous materials. 

 Assist with the protection of natural resources in streams, rivers, and other aquatic 

habitations including infrastructure during post-event debris removal operations, and 

provide debris and wood material management and stream protection expertise in the 

response phase following an all-hazards incident affecting waterways. 

 Assist FEMA to identify invasive species and pathogens, federally-protected species, 

wetlands, fluvial features, and aquatic habitats, and provide assistance and technical 

expertise on stream stabilization issues. 

 Assist with the protection of natural resources, human safety, and provide technical 

expertise, and guidance and potential cost savings to public assistance applicants related 
Response Federal Interagency Operational Plan 

C.5-16

to infrastructure replacement (including culverts and bridge replacements) and repair 

including for coastal, wetland, floodplain, stream, river, or waterway restoration 

following inland flooding or other all-hazards incidents. 

Phase 2c—Sustained Response 

End State: Site surveys and damage assessments have been completed. In coordination with the 

private sector, activities to stabilize existing infrastructure, support facilities, and evacuation 

processing centers have been completed. (Supports IS-MO-1, IS-MO-2, IS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #3 

 Evaluate damage assessment and coordinate local, state, tribal, territorial, insular area, 

and private sector resources to restore critical infrastructure. 

 Determine priorities that support local, state, tribal, territorial, insular area, and Federal 

objectives and support private industry in meeting the objectives. 

 ESF #4 

 Provides expertise and personnel to assist with assessment of emergency services sector 

critical infrastructure. 

 ESF #5 

 Provide situational awareness reporting on the status of critical infrastructure to maintain 

the common operating picture. 

 Provide updates to the infrastructure of concern list as the incident evolves and updated 

information regarding infrastructure impacts becomes available. 

 Provide more detailed infrastructure analysis through the National Infrastructure 

Simulation and Analysis Center and in conjunction with the SSA(s), including supply 

chain, cascading effects, restoration priorities, and economic impact analysis. 

 ESF #10 

 Decontaminate and/or clean up infrastructure for incidents where infrastructure is 

contaminated by oil or hazardous materials. 

Phase 3a—Short-term Recovery 

End State: Repairs to critical infrastructure have been completed. Management of long-term repair 

and restoration of public and private sector projects have transitioned to recovery mechanisms. 

(Supports IS-MO-2, IS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #3 

 Coordinate with local, state, tribal, territorial, and insular area governments, and 

voluntary organizations to ensure resources are available (e.g., registration, case 

management, and housing). 

 Support local, state, tribal, territorial, and insular area authorities with debris management 

and the monitoring and assessment of stabilization and restoration activities. 
Response Federal Interagency Operational Plan 

C.5-17

 ESF #5 

 Coordinate requests for assessment and prioritization support through the NIPP 

coordination structure (infrastructure liaisons and protective security advisors). 

 ESF #12 

 Participate in post-incident hazard mitigation studies to reduce the adverse effects of 

future disasters. 

Administration and Support 

Each Federal department and agency will continue to maintain its roles and responsibilities under 

Federal laws and regulations. Each department and agency will adhere to individual activation, 

notification, deployment, and deactivation procedures. 

Table C.5-3: Infrastructure Systems Core Capability Waivers and Exemptions 

Type Description

Waiver DOT grants special authorization under 14 C.F.R. § 375.70 to permit foreign civil 

aircraft to be used to carry evacuees and other persons and relief supplies without 

charge, to the extent those operations would not otherwise be authorized under 14 

C.F.R. § 375.35.

Exemption

DOT to grant carriers licensed under 14 C.F.R. Part 125 emergency exemption 

authority from the provisions of U.S.C. § 4110 to allow those carriers to provide 

assistance in the carriage of freight and people affected by a disaster, and the 

transport into affected areas of relief, supplies, and personnel.
Response Federal Interagency Operational Plan 

C.5-18

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Response Federal Interagency Operational Plan 

C.6-1 

Appendix 6 to Annex C: Mass Care Services

Purpose 

The purpose of this appendix is to describe the delivery of the Mass Care Services core capability. 

The Mass Care Services core capability provides life-sustaining and human services to the affected 

population, to include hydration, feeding, sheltering, temporary housing, evacuee support, 

reunification, and distribution of emergency supplies. 

The Mass Care Services (MC) critical tasks are as follows: 

 MC-Critical Task-1. Move and deliver resources and capabilities to meet the needs of disaster 

survivors, including people with access and functional needs. 

 MC-Critical Task-2. Establish, staff, and equip general shelters and other temporary housing 

options (including accessible housing) for the affected population. 

 MC-Critical Task-3. Move from congregate to non-congregate alternatives and provide 

relocation assistance or interim housing solutions for families unable to return to their residence. 

Situation 

After an emergency or disaster has impacted a community and its population, Mass care services and 

programs are implemented to assist survivors. Priorities will include providing life-sustaining 

services to the affected population with a focus on hydration, feeding, and sheltering. Additional 

resources and services may be mobilized, including support to individuals with disabilities, 

individuals with LEP, and others with access and functional needs, children, household pets and 

service and assistance animals. Family reunification and the distribution of emergency supplies may 

also be implemented. During mass evacuations, mass care services may also be required to support 

the displaced population. 

Mass care services are primarily provided by local, state, tribal, territorial, and insular area 

departments, agencies, and NGOs. When resource requirements exceed the capabilities of these 

entities in affected and host jurisdictions, substantial and sustained Federal support may be requested. 

Federal assistance includes coordination, resource acquisition and deployment, and implementation 

of financial, and/or direct assistance programs. Programs may include nutrition assistance, crisis 

counseling, disaster unemployment assistance, legal services, case management, temporary housing, 

loans, relocation assistance, and other services. Other services may include the sustainment, support 

and management of livestock in the impacted area, which is critical to safeguarding an important 

source of the Nation’s food supply for survivors as well as individuals in non-affected areas. 

Similarly, sustainment of wildlife and zoo animals will be required to avert the potential for serious 

health and safety issues in impacted areas. Impacts to agriculture and food production/distribution 

could affect the types and duration of emergency feeding and nutrition assistance. 

During a multi-state or catastrophic disaster, there may be a shortage of critical resources including 

commodities, food, potable water, trained personnel, warehouses, transportation, housing and other 

needed supplies and support resulting in competition among local, state, tribal, territorial, insular 

area, and/or Federal jurisdictions. 

Varying local, state, tribal, territorial, insular area, and Federal authorities and regulations may 

further inhibit the acquisition of resources necessary to support response operations directly 

associated with the procurement of supplies and/or delivery of mass care services. 
Response Federal Interagency Operational Plan 

C.6-2 

The provision of mass care services requires coordination across government, NGOs, faith-based 

organizations, and private sector entities to ensure that life-sustaining services are provided to 

disaster survivors in impacted and host jurisdictions. Depending on the severity of the incident and 

the level of response required, the integration of non-traditional responders and resources into the 

provision of mass care services may be necessary. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. Assumptions 

specific to this core capability include: 

 Depending upon the number and condition of shelters in the impacted area, damage to 

infrastructure, access to communication and life-sustaining resources and services and other 

factors, there will be a need to evacuate disaster survivors to host jurisdictions. 

 A significant number of disaster survivors will self-relocate rather than stay in shelters. Mass care 

services will need to be provided to survivors relocating to host jurisdictions. 

 Impacted communities will open independent/spontaneous shelters to provide for the needs of 

disaster survivors, but they will lack sufficient trained staff and resources (e.g., baby formula, 

diapers, cots, blankets, durable medical equipment, consumable medical supplies) to support the 

needs of the shelter population. 

 Local/state governments will plan for the affected population to remain in the impacted area, 

creating challenges for mass care service organizations to provide life-sustaining services and 

increasing health and safety concerns for survivors and responders. 

 During multi-state and catastrophic disasters, limited communications and inconsistent legal 

requirements across jurisdictions will pose challenges for the reunification of unaccompanied 

minors. 

 Mass care service providers will be challenged to meet the diverse cultural and dietary needs 

(e.g., low sodium, low fat, vegetarian/vegan, halal, kosher) of the affected population. 

 The scarcity of appropriate vehicles (e.g., ambulances, paratransit, canteens, box trucks, 

refrigerated trucks, passenger vans/buses) to provide mass care services will hamper the delivery 

of life-sustaining services and the coordination of response and recovery activities to disaster 

survivors. 

 Unaffiliated volunteers and unsolicited donations on-scene will absorb scarce resources and 

potentially obstruct coordinated response and recovery efforts. 

 Resources to support household pets and service and assistance animals in the impacted area will 

be insufficient (e.g., appropriate vehicles, cages, food, and veterinary care). 

Mission 

Federal interagency partners coordinate and provide life-sustaining mass care resources, essential 

services, and statutory programs when the needs of all disaster survivors exceed local, state, tribal, 

territorial, and insular area resources. 
Response Federal Interagency Operational Plan 

C.6-3 

Execution 

Concept of Operations 

Phase 1 

Federal departments and agencies coordinate with local, state, tribal, territorial, and insular area 

governments, NGOs, and the private sector to develop operational plans, guidance, training materials 

and exercises; identify resource shortfalls; work together to develop innovative solutions; develop 

PSMAs, contracts, and acquisition mechanisms; and integrate the capabilities of non-traditional 

stakeholders into plans to ensure that resources, services, and programs are able to meet the lifesustaining needs of disaster survivors. 

Phase 2 

Initial mass care response activities, including, shelter, food, and hydration, focus on the lifesustaining needs of disaster survivors in impacted jurisdictions and are provided, managed, and 

coordinated at the local level. NGOs support the response by providing services under their own 

mission and/or harnessing the capabilities of partner organizations. When needed, Federal 

departments and agencies work under their own statutory authorities in coordination with local, state, 

tribal, territorial, and insular area governments, NGOs, and the private sector providing a broad 

spectrum of mass care programs and assistance during both Stafford Act and non-Stafford Act 

disasters. 

Federal interagency partners are committed to assisting affected and host states with the support of 

individuals with disabilities, individuals with LEP, children, and others with access and functional 

needs, individuals with LEP, children, and others who require assistance through the provision of 

shelter, food that meets dietary requirements, durable medical equipment, consumable medical 

supplies, assistive technology, personal assistance services, language assistance services, 

reunification, behavioral health and emotional health services, disaster information, and other 

necessary services. Service and assistance animals remain with the person whom they are trained to 

assist in accordance with the Americans with Disabilities Act of 1990, as amended. 

Federal departments and agencies also support the rescue, transportation, shelter, reunification, care, 

and essential needs of household pets displaced by disaster. This support may include technical 

assistance, reimbursement, acquisition of equipment and supplies, and the provision of services. 

Recovery efforts are initiated concurrently with response activities. After a Presidential declaration of 

a major disaster, Federal departments and agencies also immediately begin working toward a 

seamless transition from response to recovery. Many of the Federal statutory Mass Care Services’

core capability programs, from housing to financial assistance, begin to assist survivors while lifesustaining services are still being provided. 

Local, state, tribal, territorial, insular area, Federal, nongovernmental, and private sector assistance is 

provided to eligible survivors to rebuild, repair, and replace damaged structures; replace damaged 

and destroyed personal property; and pay for medical/funeral expenses. Survivors complete the 

transition from congregate and non-congregate sheltering to interim and permanent housing 

solutions. Households unable to return to their pre-disaster dwellings, rebuild or relocate. FEMA and 

nongovernmental case management programs help survivors take practical steps to stabilize their 

lives in the aftermath of a disaster. 

Federal departments and agencies that provide financial assistance to survivors include: DOL, Small 

Business Administration (SBA), Department of Housing and Urban Development (HUD), FEMA, 
Response Federal Interagency Operational Plan 

C.6-4 

VA, USDA Rural Development, Internal Revenue Service, and include, but not limited to, loans and 

grants to individuals and communities. 

Federal Human Services grant programs may be implemented, at the request of the affected state, to 

provide support services to survivors, including crisis counseling and disaster unemployment. For 

survivors who qualify for Federal assistance, other programs, including temporary housing and 

financial assistance, are available. This assistance is intended to help survivors transition to noncongregate sheltering or temporary housing options. 

Phase 3a 

The private sector and voluntary organizations provide direct support to affected and host 

communities through solicited and unsolicited cash and in-kind donations, including goods, services, 

and skilled and unskilled labor. Federal interagency partners support affected states in the 

management of unsolicited donations and unaffiliated volunteers. Support may include technical 

assistance, acquisition of equipment and supplies, coordination of government-to-government 

assistance, and assistance from international organizations as well as human resource support. 

The Mass Care Services core capability is linked closely with two RSFs under the National Disaster 

Recovery Framework: Housing and Health & Social Services. FEMA works closely with the 

Housing RSF to coordinate the transition of survivors from sheltering and temporary housing to long 

term and permanent housing as quickly as possible. FEMA also coordinates closely with the Health 

& Social Services RSF to ensure continuous support for social services needs in the impacted 

communities. 

Coordinating Structure 

Many ESFs support the Mass Care Services core capability. The ESFs that perform tasks under this 

core capability are summarized in Figure C.6-1. Specific tasks conducted by these ESFs are 

identified in the Tasks by Phase, by ESF section below. 
Response Federal Interagency Operational Plan 

C.6-5 

Figure C.6-1: Coordination of ESF Support to Mass Care Services 

ESF #6 at the NRCC relies on reports and information from the RRCC, which in turn collects data 

from state EOCs and other field units, such as IMATs, as well as from NGOs and the private sector, 

to collectively develop shared situational awareness and a common operating picture, determine 

mission priorities, and meet resource shortfalls. ESF #6 also distributes operational information to 

Support Agencies and other ESFs to foster an integrated response. 

FEMA coordinates Federal response and recovery operations with whole community mass care 

providers from local, state, tribal, territorial, and insular area governments, other Federal 

departments, agencies, voluntary organizations and the private sector. In conjunction with the 

American Red Cross and National VOAD, FEMA supports the mobilization of NGOs and private 

sector partners for the provision of mass care services during a response. 

Mass care, emergency assistance, temporary housing, and human services agencies and organizations 

at the local, state, tribal, territorial, insular area, and Federal levels work together to provide lifesustaining assistance to disaster survivors. The four primary functions of ESF #6 are Mass Care, 

Emergency Assistance, Temporary Housing, and Human Services. 

Mass Care 

 Sheltering 

 Congregate Sheltering 
Response Federal Interagency Operational Plan 

C.6-6 

If requested by an affected state within a declared area, FEMA can provide additional 

sheltering resources, capacity and capability. Using contracted resources, FEMA can set up, 

operate, manage, and maintain facilities capable of sheltering, feeding, and providing other 

support services for disaster survivors, service and assistance animals, and household pets. 

Additional shelter capacity may be added through collaboration with other Federal 

departments and agencies and the Corporation for National and Community Service, and 

with faith-based, community, nonprofit, and private groups. 

Shelter providers should ensure that the life-sustaining needs of residents are met, including 

making necessary accommodations to support the needs of individuals with disabilities, 

individuals with LEP, and others with access and functional needs. Shelters should also be 

staffed with private security guards or local enforcement agents 24/7 to provide a safe 

environment for residents. 

FEMA will utilize its ESF 6-A (formerly FEMA’s National Shelter System – NSS) to 

identify, track, analyze and provide reporting on congregate sheltering facilities. As an 

operational tool, the ESF6 – Support System provides local, state, tribal, territorial, insular 

area, and Federal emergency managers with the ability to manage and share sheltering 

information and feeding activities. 

As the ESF #6 Coordination Agency, FEMA will collaborate with the ESF #, Mass Care CoLead, American Red Cross (ARC) and reflect information from the American Red Cross 

National Shelter System (NSS) and FEMA’s ESF #6 – Support System (formerly FEMA’s 

National Shelter System – NSS) to identify, track and analyze and provide reporting on a 

range of Mass Care/Emergency Assistance (MC/EA) activities, such as congregate sheltering 

facilities. As operational tools, the ARC NSC and ESF#6 – Support System will support 

developing comprehensive situational awareness and reporting capabilities in support of 

local, state, tribal, territorial, insular area, and Federal emergency managers with the ability to 

manage and share information on the range of MC/EA services (e.g. sheltering, feeding 

activities, distribution of emergency supplies, reunification). 

 Non-congregate/Transitional Sheltering 

When traditional sheltering is not available or feasible, or the impact of the disaster is of such 

magnitude that extended shelter operations are required, FEMA may be able to provide 

resources and technical assistance in support of affected and host local, state, tribal, 

territorial, and/or insular area governments, and voluntary organizations. Nonconventional/transitional sheltering options include: 

 Hotels/motels 

 Soft-sided non-congregate units and similar facilities 

 Dormitories 

 Pre-fabricated and modular facilities 

 Recreational vehicles/campers 

 Berthing vessels 

 Campgrounds 
Response Federal Interagency Operational Plan 

C.6-7 

 Shelter-in-place. 

Public authorities may instruct individuals to shelter-in-place, particularly in the event of an 

accidental or intentional release of hazardous materials, such as radiological, biological, or 

chemical contaminants. Federal ESF #6 support may include the provision of food, 

hydration, hygiene kits and/or services, prophylaxes, and information. 

 Feeding 

If requested by an affected state within a declared area, FEMA can provide supplemental feeding 

services at fixed sites, distribution sites, and through mobile feeding units. Feeding services may 

include hot or shelf-stable meals, infant formula, baby food, snacks, beverages, and food 

packages, as well as diverse dietary meals (e.g., low sodium, low fat, vegetarian/vegan, halal, 

kosher). ESF #6 works in concert with Food and Nutrition Service and with local, state, tribal, 

territorial, and insular area governments, voluntary organizations, and the private sector to 

acquire, prepare, cook, and/or distribute food and food supplies. Additional support may include 

the provision of technical assistance for the development of state feeding plans. The Food and 

Nutrition Service may also authorize a state’s request to implement the Disaster Supplemental 

Nutrition Assistance Program (D-SNAP) to assist survivors. 

 Hydration 

ESF # 6 coordinates closely with ESF #7 to identify hydration and water requirements and to 

fulfill them. Hydration is a critical need that requires the whole community to ensure that 

distribution of appropriate liquids will reach the entire affected population and sustain life. 

Additional individual filtration devices and equipment may be purchased by designated 

departments or agencies, as directed, for the distribution of potable water to disaster survivors. 

Additional water will be necessary for portable showers and sanitation units at individual shelter 

and feeding sites. 

 Reunification 

After a Presidentially declared major disaster or emergency, the Federal Government supports 

reunification at the local, state, tribal, territorial, and/or insular area levels with technical 

assistance, including the deployment of reunification teams, at the request of the state. Systems, 

such as the National Emergency Family Registry and Locator System (NEFRLS) and/or the 

provision of equipment and supplies, may also be provided to affected jurisdictions to facilitate 

reunification. NGO systems, such as the American Red Cross Safe and Well program and social 

media sites, also provide tools to facilitate reunification. 

Reunification of adults is supported by NEFRLS. Reunification of unaccompanied minors with 

their parent(s)/legal guardian is a local/state responsibility. Federal ESF #6 provides mechanisms 

to support the reunification of unaccompanied minors, age 21 and younger, with their 

parent(s)/legal guardian after a declared incident. Federal assistance includes the deployment of 

National Center for Missing & Exploited Children Team Adam reunification teams and 

implementation of a toll-free hotline, as well as provision of information to the public about 

additional resources available. ESF #6 also coordinates closely with ESF #8 and the National 

Center for Missing & Exploited Children to facilitate the reunification of pediatric patients 

displaced as a result of a disaster. 

The agency with legal responsibility for the care of unaccompanied minors varies among 

jurisdictions and states. It is critical for response personnel to identify the agency responsible for 

the temporary care of unaccompanied minors in the aftermath of a disaster. 
Response Federal Interagency Operational Plan 

C.6-8 

FEMA and its whole community partners developed the Post-disaster Reunification of Children: 

A Nationwide Approach document to enhance the safety and security of children following a 

catastrophic incident. 

 Distribution of Emergency Supplies 

ESF #6 acquires and facilitates the delivery of life-sustaining resources as well as hygiene and 

clean up items to meet the urgent needs of disaster survivors. Points of distribution (POD) 

established in coordination with local, state, tribal, territorial, insular area, and Federal 

governmental entities, voluntary agencies, and other private sector organizations within affected 

area(s) provide these items to survivors. Additional support includes transportation, warehousing, 

equipment, technical assistance, and other mission-critical services. 

Emergency Assistance 

 Children Support 

ESF #6 provides support for the physical, behavioral, and emotional needs of children during 

disasters. Assistance can include the provision of infant/toddler supplies, including infant 

formula, baby food, diapers, and other life-sustaining resources; reimbursement to states, tribal 

nations, territories, and insular areas for childcare services; and behavioral and emotional 

support. 

 Voluntary Agency Coordination 

Before and during disasters, Voluntary Agency Liaisons (VAL) build relationships with 

voluntary, faith- and community-based organizations to provide and share information and 

guidance on Federal and state assistance programs. VALs also help to enhance relationships 

among all levels of emergency management and the private sector and assist communities in the 

establishment of long-term recovery groups. 

In coordination with National VOAD, state VOAD, and other local and national NGOs, VALs 

provide subject matter expertise and program information in order to assist the locals in 

developing recovery strategies for disaster survivors and impacted communities. Additionally, 

VALs assist in the coordination of local, state, national, and international voluntary organization 

response on behalf of FEMA to minimize duplication of benefits and services and maximize 

Federal financial assistance programs. 

 Donations and Volunteer Management 

FEMA provides technical assistance to help impacted states to manage unaffiliated volunteers, 

unaffiliated organizations, and unsolicited donated goods. 

The Federal Government encourages local, state, tribal, territorial, and insular area governments 

to coordinate with NGOs, volunteer centers, and private sector entities through local VOAD to 

participate in preparedness activities including planning, establishing appropriate roles and 

responsibilities, training, and exercising. 

During disasters, FEMA supports states in activating plans, messaging and software to facilitate 

connections between donors and recipient organizations and deploys teams to coordinate the 

management and flow of unsolicited goods and unaffiliated volunteers. 

FEMA also helps states to: 

 Establish a hotline/call center operation to support the processing of donations offers 

 Set up warehouses to store unsolicited donated goods 
Response Federal Interagency Operational Plan 

C.6-9 

 Set up Volunteer Reception Centers to process unaffiliated volunteers 

 Develop public messaging to educate individuals and the private sector on effective and 

appropriate ways to volunteer and donate. 

 Support for Access and Functional Needs 

ESF #6, as provided for in the Rehabilitation Act of 1973, American with Disabilities Act of 

1990, and the Architectural Barriers Act, coordinates and provides equipment, supplies, and 

services to help with disabilities and also assists others with access and functional needs to 

maintain their independence in congregate facilities. Services include technical assistance, 

deployment of assessment teams, personal assistance service providers, durable medical 

equipment, and consumable medical supplies and may also include temporary retrofitting of 

facilities. 

 Mass Evacuee Support 

During mass evacuations, mass care services may be provided to evacuees at points of collection, 

embarkation, and debarkation, along the evacuation route, at transportation hubs, reception 

processing sites, shelters, and other locations. Local, state, tribal, territorial, and insular area 

jurisdictions activate and execute evacuation protocols for impacted populations, including 

individuals with access and functional needs, such as individuals with disabilities, individuals 

who are institutionalized, tourists, visitors, and foreign students to ensure that lifesaving and lifesustaining services are provided. Federal evacuee support to affected and host jurisdictions 

includes the provision of mass care services and support for tracking the movement of evacuees, 

their household pets and/or service and assistance animals, luggage, and medical equipment 

throughout all phases of the evacuation. Resources are deployed to support affected and host 

jurisdiction evacuation operations, to include National Mass Evacuation Tracking System kits 

and staff to provide technical assistance. In coordination with ESF #8, provides mass care 

services to medical patient evacuees. 

 Animal Response 

During disasters and emergencies, local, state, tribal, territorial, insular area, and Federal 

departments, agencies and NGOs identify and coordinate the provision of care to animals, 

including household pets, service and assistance animals. FEMA and USDA mobilize and 

coordinate resources, including technical assistance to affected jurisdictions. This support may be 

achieved through scalable and flexible integration of animal issues into the Multiagency 

Coordination System. USDA Animal and Plant Health Inspection Service (APHIS) assists in 

coordinating with nonprofit and private organizations and government departments or agencies to 

support the rescue, care, shelter, and essential needs of animals, including household pets, service 

and assistance animals. Government, NGOs, and private sector partners work together to share 

data and resources, as well as to ensure that social media are utilized to facilitate reunification of 

household pets and other animals. 

 Temporary Roof Repair 

Provides quick repairs to damaged roofs on private homes. This assistance allows residents to 

return to and remain in their own homes while performing permanent repairs. 
Response Federal Interagency Operational Plan 

C.6-10

Temporary Housing 

Federal housing assistance is provided to eligible survivors after a Presidential declaration of major 

disaster for Individual Assistance through the FEMA, SBA, HUD, USDA-Rural Development, and 

VA.

Survivors may be eligible for a rental stipend or government-provided temporary housing unit (THU) 

grants and loans may be awarded toward home repair or home replacement if not covered by 

insurance. Additionally, direct or financial assistance may be provided toward home construction. 

Survivors moving from temporary to permanent housing may be eligible for relocation assistance 

under the Relocation Assistance Program. 

FEMA programs and resources that may enable survivors remain on or near their damaged 

home/property include: 

 Repair Program: Provides grants to repair disaster-caused damage not covered by insurance to 

make the damaged home safe, secure, and functional. 

 Replacement Program: Provides funds up to the program limit for home replacement. 

 Temporary Housing: Provides funds for eligible survivors to rent an alternate place to live or for 

a THU when rental properties are not available. 

 Existing Temporary Housing Resources: A centralized location for identified available temporary 

housing resources from the private sector and other Federal departments and agencies (e.g., 

HUD, VA, and USDA properties). 

 Rental Assistance: Provides financial assistance to individuals and families for rental of 

temporary accommodations. 

 Transportation to Other Locations: Provides assistance to relocate individuals and families 

outside of the disaster area, where short- or long-term housing resources are available. 

Transportation services may include return to the pre-disaster location. 

 Semi-permanent or Permanent Housing Construction: Provides financial or direct assistance to 

construct permanent or semi-permanent housing. 

 Direct Housing Assistance: Provides THUs on private sites, commercial parks, or other 

temporary group sites. The direct housing program is activated when the disaster impacts a 

disproportional number of dwellings in one or more areas of the affected communities and no 

other housing solution is available within a reasonable distance from their pre-disaster address. 

This program involves the provision of THUs. Units provided are appropriate to the needs of the 

community and include units accessible to those with disabilities and others with access and 

functional needs. 

 Multi-family Repair Program: Provides funding for the repair of multi-family housing for the 

purpose of housing disaster survivors when there is a shortage of housing resources available and 

doing so is cost-effective compared to providing other forms of temporary housing. 

Human Services 

 Disaster Case Management Program 

Disaster case management helps survivors manage the recovery process by providing timelimited, one-on-one assistance to develop and implement an individual disaster recovery plan. 
Response Federal Interagency Operational Plan 

C.6-11

The case manager provides a single point of contact to a broad range of resources, and, when 

necessary, serves as an advocate for the survivor. 

 Other Needs Assistance 

FEMA applicants may receive grants for income-qualified uninsured, necessary and serious 

needs caused by the disaster. This includes medical, dental, funeral, personal property, 

transportation, moving and storage, and other critical needs assistance expenses. 

 Disaster Legal Services 

The American Bar Association Young Lawyers Division offers Disaster Legal Services to help 

survivors with bankruptcy, civil rights, employment law, landlord-tenant law, FEMA benefits 

claims, wills, trusts, and probate matters, among other issues potentially arising from disaster. 

 Disaster Unemployment Assistance 

DOL provides unemployment benefits and re-employment services to individuals who have 

become unemployed because of major disasters. These benefits are made available to individuals 

not covered by other unemployment compensation programs. 

 Physical, Emotional, Behavioral, and Mental Health Programs 

Crisis counseling, mental health assistance and other similar programs provide immediate, shortterm psychological assistance to disaster survivors. These services help survivors to relieve 

grieving, stress, or mental health problems caused or aggravated by a disaster or its aftermath. 

Assistance provided is short-term and is at no cost to the disaster survivor. 

HHS may augment existing Federal resources for emotional, behavioral, and mental health needs 

through partnerships with a variety of nonprofit organizations, industry associations, and 

religious organizations. 

ESFs that provide support to the delivery of the Mass Care Services core capability are included 

in the following section. 

Mass Care Services Tasks 

Mission Objectives 

 MC-MO-1: Support the integration and implementation of operational plans among public, 

private, and nongovernmental sectors to deliver mass care services. (Supports MC-Critical Task1) 

 MC-MO-2: Coordinate, alert, and deploy Federal mass care resources to support the staffing and 

equipping of general population shelters and other temporary housing options (including 

accessible housing) for the affected population. (Supports MC-Critical Task-2) 

 MC-MO-3: Coordinate with public, private, and nongovernmental partners to gain and maintain 

shared situational awareness and identify resource and personnel requirements. (Supports MCCritical Task-1) 

 MC-MO-4: Analyze, prioritize, and allocate Federal resources to support mass care operations. 

(Supports MC-Critical Task-1) 

 MC-MO-5: Coordinate the provision of reunification services to reunite family members and 

caregivers with those missing as a result of the incident. (Supports MC-Critical Task-3) 
Response Federal Interagency Operational Plan 

C.6-12

 MC-MO-6: Identify non-congregate housing alternatives and facilitate transition from congregate 

facilities, including the provision of relocation assistance or interim housing solutions for 

families unable to return to their pre-disaster homes. (Supports MC-Critical Task-2, MC-Critical 

Task-3) 

Phase 1a—Normal Operations 

End State: Personnel have been trained, mass care plans have been developed and reviewed, and 

commodities and services have been procured and inventoried. (Supports MC-MO-1) 

 Tasks by Phase, by ESF 

 All 

 Review regional and state evacuation and mass care operational plans. 

 Review existing contracts to determine if they meet projected mass care services 

requirements. 

 Participate in ESF #6 coordination calls. 

 Ensure that resources and assets are mission-ready to support mass care services 

activities. 

 ESF #1 

 Monitor ground and air traffic and determine potential evacuation routes. 

 ESF #3 

 Prepare for potential public works and engineering requirements, including providing 

public information, gathering information, securing staff for response teams, leveraging 

technological tools, reviewing contracts and agreements, and working with ESF #6 in the 

coordination of voluntary organizations and other NGO partners. 

 ESF #6 

 Build national mass care capacity and capability through the provision of technical 

assistance to local, state, tribal, territorial, and insular area governments. Identify 

shortfalls and develop plans, guidance, training, and exercises to fill gaps. 

 Expand national mass care services capabilities by entering into memoranda of 

agreement/understanding (MOAs/MOUs), IAAs, mission assignments, cooperative 

agreements, and contracts with traditional and non-traditional providers. 

 Review Policy Fact Sheet packages to ensure accuracy and applicability. 

 Coordinate among all ESF #6 components, Mass Care, Emergency Assistance, 

Temporary Housing and Human Services to ensure that full, efficient, and timely delivery 

of mass care services is provided. 

 ESF #7 

 Develop plans with ESF #6 partners to provide life-sustaining and human services to the 

affected population, to include hydration, feeding, sheltering, temporary housing, evacuee 

support, reunification, and distribution of emergency supplies. 

 Develop contracts and acquire inventory to support the mass care mission. 
Response Federal Interagency Operational Plan 

C.6-13

 Engage states and ESF #6 partners in the completion of the Logistics Capability 

Assessment Tool to enhance national readiness. 

 Work with ESF #6 to identify items and quantities of resources for potential deployment 

to ISBs in support of mass care services activities. 

 ESF #8 

 Work with ESF #6 to develop, revise, and maintain plans for the provision of mass care, 

reunification, and human services to patients transported to host jurisdictions; provision 

of medical services in shelters and other congregate facilities; provide veterinary medical 

support to sheltered animals; provision of prophylaxes, guidelines, and information 

during public health emergencies; and reunification of pediatric patients with their 

parent(s)/legal guardian after a medical evacuation. 

 Identify potential staff requirements and/or shortfalls for: the potential deployment of 

shelter assessment teams; the provision of medical services in shelters and other mass 

care delivery sites; provide veterinary medical support to sheltered animals; and the 

provision of technical assistance and information required to provide mass care services 

safely during public health emergencies. 

 ESF #9 

 Develop, revise, and maintain plans to coordinate the transfer of rescued survivors and 

their household pets from SAR operations to mass care services. 

 ESF #11 

 Work with ESF #6 to develop and revise plans for the rescue, transportation, shelter, 

reunification, care, and essential needs of household pets and service and assistance 

animals. 

 Assist with data collection and information analysis to inform decisions on the placement 

of temporary housing sites and staging areas and to mitigate possible damage to natural 

and cultural resources. 

 Conduct surveys of wetlands and archeological sites; make biological assessments; make 

condition assessments of historic structures and museum and archival collections to assist 

with evaluating sites to inform planning and operational decisions. 

 ESF #13 

 Work with ESF #6 to develop, revise, and maintain plans to coordinate security and 

safety of survivors at congregate mass care sites and for the safeguarding of emergency 

supplies. 

 ESF #15 

 Develop, revise, and maintain public messaging for mass care services and activities. 

Phase 1b—Elevated Threat 

End State: Mass care plans, trainings, and exercises have been reviewed and updated to build, 

sustain, and improve existing operational capabilities. (Supports MC-MO-1)

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 
Response Federal Interagency Operational Plan 

C.6-14

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Identify anticipated mass care and housing support needs and resource requirements, in 

coordination with public, private, and nongovernmental partners. (Support MC-MO-3)

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Based on preliminary situational reports, Federal personnel and resources have been 

alerted to support evacuation and mass care requirements, in close coordination with whole 

community partners. (Supports MC-MO-3) 

 Tasks by Phase, by ESF 

 ESF #1 

 Provide reports on the status of, and damage to, the transportation system and 

infrastructure (e.g., roads and National Airspace System), and other information related 

to transportation activities and accessibility. 

 Provide information on temporary alternative transportation solutions if primary systems 

or routes are unavailable or overwhelmed. 

 Provide information on regulatory waivers, exemptions, and permits to support mass care 

services activities. 

 Coordinate with state(s) Departments of Transportation to provide status of 

transportations infrastructure (e.g., road conditions). 

 ESF #3 

 When requested, inspect mass care facilities to ensure suitability for, and accessibility to, 

survivors. 

 Provide damage/status reports on water and wastewater treatment plants. 

 Work with ESF #6 to identify shelters and prioritize other mass care facilities that require 

emergency power. 

 Provide information on the status of waterways. 

 ESF #6 

 Coordinate with local, state, tribal, territorial, and insular area governments and NGOs to 

identify local capabilities and shortfalls and provide resource support for mass care 

services as requested by the state. 

 Provide a mass care/emergency assistance evacuee support liaison for Federal evacuation 

support planning in coordination with state, tribal, territorial and insular area 

governments. 
Response Federal Interagency Operational Plan 

C.6-15

 Provide evacuee support (e.g., support for registration and tracking of evacuees and mass 

care for evacuation operations). 

 Participate in Stafford Act disaster declaration calls with the affected regions and states. 

 Initiate discussions with mass care service providers to determine potential needs for 

support based on shared situational awareness (e.g., support for individuals with 

disabilities, individuals with LEP, and others with access and functional needs, children, 

human needs assessments, household pets and service animal support). 

 Activate contracts to meet mass care/emergency assistance resource requirements. 

 Support state EMAC requests for out-of-state mass care resources. 

 Collect, analyze, monitor, and report on the status of mass care services activities, 

including: 

‒ Sheltering 

‒ Feeding 

‒ Support services to individuals with disabilities, individuals with LEP, and others 

with access and functional needs 

‒ Distribution of emergency supplies 

‒ Household pet and service animal support missions (e.g., rescue, transportation, 

shelter, reunification, care, essential needs) 

‒ Requirements related to children in mass care facilities 

‒ Evacuee support 

‒ Reunification services 

 Provide voluntary agency coordination. 

 Coordinate with VOAD members and other mass care service providers to identify 

available inventory of mass care resources and fill any shortfalls. 

 Issue mission assignments to ESF #6 support departments and agencies, as needed. 

 Activate and deploy pre-identified personnel/teams and other resources to identify 

immediate mass care/emergency assistance requirements for the affected area, and 

coordinate with logistics to support requirements. 

 Establish and monitor communication links with FEMA’s Logistics Management 

Directorate regarding mass care support items. 

 Identify immediate feeding, hydration, and emergency supply (including durable medical 

equipment) requirements for the affected area, and coordinate with logistics to support 

requirements. 

 Engage the private sector to determine resource availability within area of impact. 

 Place food vendor, personal assistance services, and other contractors on alert. 

 Identify and coordinate sheltering requirements to determine the Federal resources 

required to meet state/regional shortfalls. 
Response Federal Interagency Operational Plan 

C.6-16

 Coordinate with ESF #11 on requests for USDA Foods and infant formula and baby food 

to supplement FEMA’s infant/toddler kits and ESF #7 on the delivery of shelter and 

emergency supplies to staging areas, support shelters, PODs, and the shelter-in-place 

populations. Use the Commonly Used Shelter Items/Services List catalog as a reference 

for making supply determinations. 

 Coordinate, alert, and deploy Federal mass care resources to support mass care services 

activities, including: sheltering; feeding; distribution of emergency supplies; support to 

individuals with disabilities, individuals with LEP, and others with access and functional 

needs, children, household pets, and service and assistance animals; reunification 

services; and mass evacuee support. Also, support voluntary agency coordination and 

unsolicited donations and unaffiliated volunteer management. 

 Coordinate with ESF #7 to deliver commodities and other emergency supplies (e.g., tents, 

tarps) to staging areas. 

 Deploy preliminary damage assessment teams. Review/analyze reports on the status of, 

or restoration of, critical infrastructure and damage to survivors’ homes.

 Coordinate procurement specifications with local, state, tribal, territorial, and insular area 

departments and agencies through Individual Assistance Technical Assistance Contract 

(IA-TAC) and activate/issue requests for assistance, as needed. 

 Request inventory and identify available transportation resources, shelter facilities, 

medical facilities, personnel (including shelter staffing), equipment, and supplies. 

 Activate Contracting Officer’s Technical Representatives for mass care contracts and 

process for resources. 

 Activate and mobilize surge staffing for the National Processing Service Center to meet 

anticipated increase in registration and call center volume. 

 Coordinate reunification services, including the National Emergency Family Registry and 

Locator System (NEFRLS), and mobilize the NEFRLS Web site and call center at the 

request of the RRCC or the affected state. Activate and fund the NCMEC National 

Emergency Child Locator Center, and activate National Center for Missing & Exploited 

Children Team Adam to support child reunification at the local, state, tribal, territorial, 

and insular area levels. 

 Provide support for RRCC/JFO housing strategy planning. 

 Implement the National Disaster Housing Strategy. 

 Activate resources to fulfill mass care/emergency assistance requirements identified in 

support of Red Cross activities and other MC/EA partners. 

 Determine the placement of functional needs sheltering caches from regional storage 

sites. 

 Coordinate assessment by Administration for Children and Families of human 

services/social services critical needs in the impacted area. 

 ESF #7 

 Ensure coordination with impacted states, ESF #6, and voluntary organizations to 

minimize duplication of commodities delivered to the field. 
Response Federal Interagency Operational Plan 

C.6-17

 ESF #8 

 Work with ESF #6 to identify the need to implement the Emergency Prescription 

Assistance Program in impacted states. 

 Provide information to ESF #6 on the location of patients evacuated to host jurisdictions 

to facilitate family reunification. 

 ESF #9 

 Provide information to ESF #6 on SAR activities, including the location of rescued 

survivors to facilitate family reunification. 

 Coordinate with ESF #6 to transfer rescued survivors and their household pets from SAR 

operations to mass care services. 

 ESF #11 

 Provide technical assistance and coordinate with ESF #6 and state agencies on potential 

needs for USDA Foods, infant formula, and baby food, and possible D-SNAP requests. 

 Participate in Multiagency Coordination functions as necessary to provide support to 

animal issues, as mission-assigned and provide technical assistance and subject matter 

expertise to local, state, tribal, territorial, insular area, and Federal governments, and 

NGOs, regarding animal response issues. 

 ESF #13 

 Coordinate with ESF #6 to provide access to voluntary organization staff to impacted 

areas. 

 Provide information on safety and security issues in impacted areas. 

 ESF #15 

 Work with ESF #6 to develop public messaging for survivors, including locations of 

shelters and other mass care services, as well as information on available Federal 

assistance programs. Ensure that messaging is accessible and culturally and linguistically 

appropriate. 

Phase 2b—Deployment

End State: In coordination with the affected jurisdictions, Federal mass care support resources and 

personnel requirements are analyzed, prioritized, and deployed to the affected area. (MC-MO-2, MCMO-4) 

 Tasks by Phase, by ESF 

 ESF #3 

 Conduct pre-incident and post-incident assessments of public works and infrastructure. 

 Execute emergency contract support for life-sustaining services. 

 Provide technical assistance to include engineering expertise, construction management, 

contracting, and real estate services. 

 Provide assessment and emergency response support for water and wastewater treatment 

facilities, levees, dams, buildings, bridges, and other infrastructure. 
Response Federal Interagency Operational Plan 

C.6-18

 Provide temporary emergency power to critical facilities (e.g., hospitals, water treatment 

plants, shelters, fire/police stations). 

 Provide assistance in the monitoring and stabilization of damaged structures and the 

demolition of structures designated as immediate hazards to public health and safety. 

 Provide structural specialist expertise to support inspection of mass care facilities and 

US&R operations in coordination with ESF #9. 

 Provide technical assistance to include engineering expertise, construction management, 

contracting, and inspection of private/commercial structures. 

 ESF #4 

 Deploy resources, including cots, blankets, sleeping bags, and personnel to support the 

mass care mission, if requested and available. 

 ESF #5 

 Activate ESF #6 at the national and regional level to provide coordination and technical 

assistance. 

 ESF #6 

 Mobilize mass evacuee support staff, including food, hydration, information, and 

reunification, as well as assist with tracking the movement of evacuees, household pets, 

luggage, and durable medical equipment through deployment of the National Mass 

Evacuation Tracking Systems, if requested. 

 Coordinate among all ESF #6 components, Mass Care, Emergency Assistance, 

Temporary Housing and Human Services to ensure that full, efficient, and timely delivery 

of mass care services is provided. 

 Provide support for unsolicited donations and unaffiliated volunteers. 

 Determine if mass care task forces and/or multiagency coordination systems are required 

to support state operations (e.g., Feeding Support Task Force, Animal Multiagency 

Coordination System). 

 Request and deploy health services, physical and behavioral health personnel to support 

general population sheltering operations in response to validated unmet needs. Identify 

shortfalls and anticipate potential areas for possible support services needed in shelters 

and other congregate sites. 

 Deploy mass care/emergency assistance resource support teams. 

 Implement PSMAs in support of mass care services, including the Corporation for 

National and Community Service, USDA, HHS, USACE. 

 Ensure that individuals with access and functional needs, such as individuals with 

disabilities in mass care facilities receive needed commodities, hygiene items, and 

durable medical equipment (e.g., wheelchairs, hospital beds, and canes), consumable 

medical supplies, and/or personal assistance services. 

 Deploy FEMA registration teams to shelters and other mass care sites. 

 Collaborate with ESF #11 to provide USDA Foods and infant formula and baby food to 

supplement FEMA’s infant/toddler kits.
Response Federal Interagency Operational Plan 

C.6-19

 Coordinate with other local, state, tribal, territorial, insular area, and Federal agency, 

voluntary organization, and private sector partners to provide mass care support to states 

as well as to identify and deliver additional service and resource requirements with host 

jurisdictions. 

 Conduct meetings with partner departments and agencies to identify ways to support the 

whole community, including people from diverse racial and ethnic groups, LEP persons, 

and people with disabilities, develop a common operating picture, and resolve 

outstanding activation and operational issues. 

 Adjust operational objectives and assumptions based on developing shared situational 

awareness and understanding. 

 Identify secondary shelter locations (including those outside of impact area) and 

determine resource needs to support them. 

 Evaluate the feasibility of non-traditional sheltering methods (e.g., private sector 

solutions, soft-sided shelters, small-sized portable/collapsible shelters). 

 Mission assign DoD, DOI, U.S. Postal Service, DOJ, DOL, DOT, Department of the 

Treasury, VA, GSA, and Social Security Administration in support of the mass care 

mission. 

 Deploy National Center for Missing & Exploited Children Team Adam to the affected 

area to assist in the location and reunification of missing children and their parent(s)/legal 

guardian. 

 Obtain status of THU’s nationwide from FEMA Logistics (e.g., availability and 

accessibility). Identify the availability of other types of interim and permanent housing 

alternatives. 

 Initiate the FEMA Transitional Sheltering Assistance Program and provide other mass 

care services if needed. 

 Obtain fatality information for the purpose of reunifying family members and legal 

guardians with missing persons/remains. 

 Determine the need for mobile and fixed Disaster Recovery Center sites and Mobile 

Registry Intake Centers through the RRCC/JFO. 

 Identify and deploy health services, and physical and behavioral health personnel, to 

support congregate sheltering operations. 

 Coordinate the deployment of NGOs in collaboration with the responding departments 

and agencies (e.g., the American Red Cross, Southern Baptists, The Salvation Army) 

mobile feeding units and kitchens to staging areas. 

 Deploy shelter assessment teams at the request of the state. 

 Activate and deploy mass care mission planning teams to the affected areas. 

 Coordinate emergency medical care with local, state, tribal, territorial, and insular area 

departments and agencies from the NRCC or RRCC to the JFO. 

 Initiate deployment actions for THUs in the affected area. 
Response Federal Interagency Operational Plan 

C.6-20

 Coordinate deployment of National Veterinary Response Team (NVRT) resources to 

emergency household pets sheltering sites and to support service animals in general 

population shelters, if required. 

 ESF #7 

 Deliver mass care supplies to ISBs, staging areas, shelters, POD(s), and other mass care 

sites. 

 Work with ESF #6 to identify additional mass care resource requirements. 

 Coordinate and immediately deploy pre-staged packages containing medical equipment 

and supplies. 

 ESF #8 

 Provide reports and information on critical shelter assessment requirements to ESF #6 for 

resourcing. 

 Coordinate with ESF #6 to identify patients who have been evacuated to hospitals in host 

jurisdictions to determine the types of mass care support services required. 

 Deploy medical teams to mass care sites, if required. 

 Coordinate with ESF #6 for the purpose of reunifying family members with missing 

persons/human remains. 

 ESF #11 

 Identify resources available to disaster survivors in the impacted area. 

 Provide technical assistance and coordinate with ESF #6 and state agencies on potential 

needs for USDA Foods, infant formula and baby foods, and possible D-SNAP requests. 

 Provide technical assistance to impacted jurisdictions to assist with animal issues. 

 ESF #13 

 Address the needs of institutionalized/incarcerated survivors who cannot access mass 

care services, while ensuring public security. 

Phase 2c—Sustained Response 

End State: Additional Federal resources have been delivered to the affected area. Life-sustaining 

services have been provided in close coordination with whole community partners. Eligible survivors 

have received relocation assistance or interim housing. Reunification services have been provided to 

reunite the missing with family members and caregivers. (Supports MC-MO-2, MC-MO-5)

Tasks by Phase, by ESF 

 ESF #1 

 Provide information on new regulatory waivers and exemptions to support mass care 

services activities, if any have been requested and approved. 

 Provide technical support to impacted and host states and FEMA for the coordinated 

return of survivors to pre-disaster dwellings or to new post-disaster locations. 
Response Federal Interagency Operational Plan 

C.6-21

 ESF #3 

 Provide assistance for the construction of temporary shelter facilities, including 

accessible shelters in the affected area, as required. 

 Support restoration of critical navigation, flood control, and other water infrastructure 

systems, including drinking water distribution and wastewater collection systems. 

 Manage, monitor, and/or provide technical advice in the clearance, removal, and disposal 

of debris from public property and the reestablishment of ground and water routes into 

impacted areas. 

 Deploy teams to the Area Field Office/JFO to assess the need for an Emergency 

Residential Roof Covering mission and emergency repair of primary residences damaged 

as the result of a disaster. 

 ESF #6 

 Communicate and coordinate with appropriate RSF points of contact, such as HHS for 

the Health and Social Services RSF and HUD for the Housing RSF. 

 Coordinate logistics requirements for mobile Disaster Recovery Center and mass care 

service sites. 

 Deploy Individual Assistance staff to support Disaster Recovery Center operations. 

 Coordinate resources requirements with ESF #7. 

 Coordinate with the RRCC and JFO to open mobile Disaster Recovery Centers. 

 Evaluate effectiveness in meeting objectives for sheltering, feeding, distribution of 

emergency supplies, support to individuals with disabilities, individuals with LEP, and 

others with access and functional needs, children, household pets and service and 

assistance animals, and reunification. Reprioritize and/or adjudicate resources 

accordingly. 

 Deploy additional resources to the field or reposition current resources based on a shared 

situational awareness and the status of completed objectives. 

 Integrate (or further integrate if already engaged) local, state, tribal, territorial, and insular 

area governments, NGOs, and private sector partners into mass care operations as well as 

into Housing and Human Services programs. 

 Coordinate with local, state, tribal, territorial, and insular area jurisdictions to identify 

requirements for direct housing missions, identify alternative housing options and 

synchronize local, state, tribal, territorial, insular area, and Federal Government 

assistance programs. 

 Identify and train additional mass care personnel, as needed. 

 Coordinate with local, state, tribal, territorial, and insular area VOAD to identify 

community needs. Support the transition of survivors from congregate to non-congregate 

sheltering. Help manage unsolicited donations, coordinate the relief efforts of national 

voluntary organizations deployed to the affected area, and share information with 

voluntary organizations to avoid duplication of services. 
Response Federal Interagency Operational Plan 

C.6-22

 Support local, state, tribal, territorial, and insular area governments in the development 

and employment of the mass care personnel rotation plan to minimize fatigue, ensure 

worker health, and maintain capabilities. 

 Develop a strategy for the transition from general population sheltering to transitional 

sheltering and temporary and permanent housing. 

 Support reunification services and survivor relocation mechanisms. 

 Coordinate with ESFs #1, #7, and #8 for the relocation of individuals with acute medical 

conditions, whose medical care cannot be sustained in the impacted area, to communities 

that can provide required services in the most integrated setting appropriate. 

 Provide Federal financial assistance to eligible survivors through the Individuals and 

Households Program, SBA, Internal Revenue Service, DOL, and other programs and 

departments and agencies to facilitate the transition of survivors from sheltering to 

permanent housing and begin the recovery process. 

 Provide Stafford Act grant programs such as the Crisis Counseling Program, Disaster 

Unemployment Assistance, Disaster Legal Assistance, Disaster Case Management, and 

other human services programs. 

 Coordinate with voluntary and community organizations, including organizations serving 

diverse racial and ethnic populations, that provide essential community relief services, 

including debris removal from disaster survivor residences; mud-out; tear-out; chainsaw 

work; warehouse management; transportation and distribution coordination; child care 

services; behavioral health, emotional, mental, and spiritual care and counseling; 

financial assistance; financial counseling; related disaster-related case work and case 

management; and other essential services. 

 Provide eligible survivors with relocation assistance or temporary housing solutions. 

 Initiate and implement a long-term host jurisdiction mass care services plan to facilitate 

the integration of survivors into the community. 

 Coordinate with the Housing RSF to transition survivors from sheltering and temporary 

housing to long-term and permanent housing. 

 Coordinate with the Health and Social Services RSF to ensure continuous support for 

social services needs in impacted communities. 

 Identify temporary and permanent housing alternatives (including accessible housing 

alternative) and facilitate the movement of survivors from emergency and transitional 

sheltering to those options. Support may include the provision of relocation assistance, 

temporary housing solutions, and other support for households unable to return to their 

pre-disaster dwellings. 

 ESF #7 

 Coordinate with ESF #1, ESF #6, ESF #8, ESF #11, and ESF #12 to ensure the continued 

delivery of equipment and supplies to shelters, PODs, and other mass care services sites. 

 ESF #8 

 Coordinate with ESF #1 and ESF #5 for the relocation of individuals with acute medical 

needs whose medical care cannot be sustained from the impacted area to communities 

that can provide required services in the most integrated setting appropriate. 
Response Federal Interagency Operational Plan 

C.6-23

 Coordinate with local, state, tribal, territorial, insular area, and Federal entities, NGOs, 

and the private sector to attain Public Health, Healthcare, and Emergency Medical 

Services resources, as needed. 

 ESF #11 

 Provide USDA Foods to state agencies for distribution to shelters and other mass feeding 

sites, and in certain limited situations, household distribution. 

 Provide infant formula and baby food to supplement FEMA’s infant/toddler kits. 

 Authorize state agencies to issue D-SNAP benefits. 

 Identify resources available to disaster survivors in the impacted area. 

 Provide technical assistance to impacted jurisdictions to assist with animal issues. 

 Collaborate with ESF #6 to provide nutritional assistance to disaster survivors. 

 ESF #15 

 Refine, expand, and broadcast public messaging on ESF #6 programs and services 

available to disaster survivors. 

Phase 3a—Short-term Recovery 

End State: Non-congregate housing alternatives have been identified to facilitate the transition of 

survivors from congregate shelter. Relocation assistance and/or interim housing solutions have been 

provided to applicable recipients. Mass care activities have transitioned to support the longer-term 

needs of survivors, and demobilization of Federal resources has begun. (Supports MC-MO-1, MCMO-3, MC-MO-6) 

 Tasks by Phase, by ESF 

 ESF #3 

 Implement the Emergency Residential Roof Covering program and/or the emergency 

repair of survivors’ primary residence, if requested. 

 Provide construction, engineering, and project management expertise and support for 

temporary housing and direct housing missions. 

 Construct critical public facilities to temporarily replace destroyed or damaged buildings 

following a disaster (e.g., schools, local government offices, fire stations, police stations, 

medical facilities), in coordination with ESF #6. 

 ESF #6 

 Coordinate with local, state, tribal, territorial, and insular area governments and voluntary 

organizations to ensure that human services are available (e.g., registration for disaster 

assistance, disaster case management program, housing programs). 

 Provide reimbursement or tax relief to survivors with substantial verified disaster-caused 

losses. 

 Provide survivors who have lost their jobs due to a disaster with unemployment benefits. 

 Coordinate with IA-TAC, logistics management, and others to transport THUs outside of 

the affected area. 
Response Federal Interagency Operational Plan 

C.6-24

 Coordinate with faith-based organizations, community-based organizations, and NGOs to 

provide additional emergency assistance, as needed. 

 Begin to transition from mass care, emergency assistance, and temporary housing 

activities to permanent housing and human services programs. 

 Coordinate with the FEMA Voluntary Agency Liaison team to ensure that long-term 

recovery groups are in development or already established to provide assistance to 

affected individuals and minimize duplication of benefits and services. 

 Coordinate with the Housing RSF to identify the need to provide relocation assistance to 

survivors unable to return to their pre-disaster residences. 

 Work with the SBA to facilitate loan information and application/approval processes for 

disaster survivors. 

 Determine the transitional set-up staging area for THUs and begin construction of group 

sites, in coordination with impacted regions and states. 

 Determine if the second phase of Individual Assistance programs, including crisis 

counseling and disaster case management, should be extended, in coordination with 

impacted regions and states. 

 Determine if the FEMA registration period needs to be extended, in coordination with 

impacted regions and states. 

 Adjust call center staffing requirements as needed. 

 Provide support for the provision of case management, crisis counseling, and advocacy 

services. 

 Assist with applications for Federal benefits sponsored by HHS and ensure continuity of 

assistance services in affected states and in states hosting relocated populations. 

Administration and Support 

Activation, notification, deployment, and deactivation will be as normally implemented by the 

pertinent department or agency. 

The following agreements/arrangements are specific to this core capability: 

 Memoranda of Agreement/Memoranda of Understanding: 

 American Red Cross 

 Corporation for National and Community Service 

 North American Mission Board—Southern Baptists 

 The Salvation Army 

 Adventist Community Services 

 Church World Service 

 Mennonite Disaster Service 

 United Methodist Committee on Relief 

 Feeding America 
Response Federal Interagency Operational Plan 

C.6-25

 National Voluntary Organizations Active in Disaster 

 Operation Hope 

 National Council on Independent Living. 

 PSMAs/Mission Assignments: 

 HHS: 

 Activation of Human Services Assessment and Technical Assistance assets 

 Pre-declaration activation of staff to support the NRCC 

 Pre-declaration activation of staff to support the RRCC 

 Emergency Prescription Assistance and Medical Equipment Replacement Program. 

 USDA/APHIS—Activation of staff to support NRCC, RRCC, JFO and/or other locations.

 Corporation for National and Community Service—Activation of staff to support NRCC, 

RRCC, JFO and/or other locations. 

 USDA Rural Development—Activation of staff to support NRCC, RRCC, JFO and/or other 

locations. 

Table C.6-1: Mass Care Core Capability Waivers, Exceptions, and Exemptions 

Type Description

Waiver Defense Production Act—Allows for Federal priority to secure certain supplies and 

prohibits the public from hoarding scarce materials.

Department of the Treasury/Bureau of the Public Debt—May waive the minimum 

holding period for Series EE and I Savings Bonds presented to authorized paying 

agents for redemption.

Exemption Buy America Act—Establishes requirements intended to give preference to the use 

of domestically produced materials and any procurements funded at least partially by 

Federal funds.

Extension The Internal Revenue Service provides an extension of the taxpayers in 

Presidentially declared disaster areas of the deadline to file tax returns and provide 

payment without penalties or interest.

The VA works with lenders concerning foreclosure/waiver/underwriting/credit 

protection flexibilities related to VA-issued home loans.

Exception USDA provides Letters of Priority Entitlement allowing the holder of the letter 

(identified survivor) to go to the top of any USDA MF 515 or 514 waiting lists for 

placement in USDA-financed housing.

The Social Security Administration provides expedited processing of new Federal 

benefit claims during emergency operations.
Response Federal Interagency Operational Plan 

C.6-26

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Response Federal Interagency Operational Plan 

C.7-1 

Appendix 7 to Annex C: Mass Search and Rescue Operations

Purpose 

The purpose of this appendix is to describe the delivery of the Mass Search and Rescue (SAR) 

Operations core capability. 

The Mass SAR Operations core capability delivers SAR capabilities, including personnel, services, 

animals, and assets to survivors in need, with the goal of saving the greatest number of endangered 

lives in the shortest time possible. 

The Mass SAR Operations (MS) critical tasks are as follows: 

 MS-Critical Task-1. Conduct SAR operations to locate and rescue persons in distress, based on 

the requirements of local, state, tribal, territorial, and insular area authorities. 

 MS-Critical Task-2. Initiate community-based SAR support operations across a wide 

geographically dispersed area. 

 MS-Critical Task-3. Ensure the synchronized deployment of local, regional, national, and 

international teams to reinforce ongoing SAR efforts and transition to recovery. 

Situation 

Responders will coordinate and conduct SAR response efforts for all hazards, including searching 

affected areas for survivors and locating, accessing, medically stabilizing, and extricating survivors 

from the damaged area. 

In the likely event that SAR teams and resources within the incident area are unavailable, Federal 

coordination with local, state, tribal, territorial, and insular area authorities will be required for the 

provision of limited SAR capabilities for timely rescue. Federal SAR resources may operate under 

the Economy Act when there is no Stafford Act declaration. SAR teams will conduct SAR operations 

to locate and rescue persons in distress, based on the requirements of local, state, tribal, territorial, 

and insular area authorities. This will allow for community-based SAR support operations across a 

wide geographically dispersed area. This coordinated effort will ensure the synchronized deployment 

of local, regional, Federal, and international teams to reinforce ongoing SAR efforts and transition to 

recovery. 

The success of rescue operation coordination depends heavily on the interoperability between 

individual communication systems across all SAR entities. For SAR operations, internal coordination 

and interoperability between communication systems may be limited due to downed communication 

systems. The FEMA Mobile Emergency Response Support (MERS) detachments normally deploy 

with SAR units to provide a higher level of interoperability. 

The success of SAR operations in the affected area also depends heavily on the ability to overcome 

distance or mobility limitations. SAR operations are dependent on the accessibility of the incident 

area (e.g., roads) and the availability of alternative modes of transportation (e.g., airlift support). In a 

notice incident, some assets can be activated and pre-deployed. Severely degraded or destroyed 

infrastructure will also impact the ability of SAR assets to deliver services in a timely and efficient 

manner. 

CBRNE environments can impair SAR capabilities and will require additional resources to support 

long-term operations. The ability to sustain and equip SAR capabilities in a CBRNE environment 
Response Federal Interagency Operational Plan 

C.7-2 

will be challenging and the attempt may pose a safety hazard to the SAR personnel. For sustained 

operations, constant air monitoring and long-term SAR personnel health monitoring are required. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. 

Mission 

Federal interagency partners will initiate and conduct SAR operations to rescue people in distress 

based on the requirements of local, state, tribal, territorial, and insular area authorities. These Federal 

interagency partners will also ensure synchronization of deployed Federal, regional, local, and 

international teams to reinforce ongoing SAR efforts and transition to recovery. 

Execution 

Concept of Operations 

Phase 1 

The National SAR Plan of the United States serves as the Nation’s plan for coordinating SAR 

services to meet domestic needs and international commitments. The NRF, U.S. National SAR 

Supplement, Catastrophic Incident SAR Addendum to the U.S. National SAR Supplement, and other 

addenda also define SAR responsibilities and provide guidance to the Federal departments and 

agencies with civil SAR mandates. The U.S. National SAR Supplement provides implementation 

guidance on the International Aeronautical and Maritime SAR Manual and the National SAR Plan. 

The Catastrophic Incident SAR Addendum provides a description of the unified SAR response to 

catastrophic incidents, guides Federal authorities involved in the response, and informs local, state, 

tribal, territorial, and insular area authorities on what to expect of/from Federal SAR responders. 

Federal SAR Coordinators support local, state, tribal, territorial, and insular area SAR Coordinators’ 

efforts to develop catastrophic incident plans through planning, training, and exercises. Local, state, 

tribal, territorial, insular area, and Federal policies and procedures are continuously updated to reflect 

lessons learned from exercises and incidents. 

Federal departments and agencies continue to provide training guidance to local, state, tribal, 

territorial, and insular area officials to strengthen their SAR capabilities and to help pre-identify 

Federal installations and available personnel with SAR skills and expertise that can serve as force 

multipliers during an incident. 

Local, state, tribal, territorial, and insular area authorities are responsible for SAR within their 

respective jurisdictions and typically designate a SAR Mission Coordinator to provide integration 

and coordination of all SAR services. If an affected local, state, tribal, territorial, or insular area 

government publishes guidance or a plan for conducting unified SAR operations, that guidance or 

plan takes precedence. 

Phase 2 

Federal SAR resources are alerted, activated, and deployed, as required. Incident-specific factors 

such as incident type, size, and location will define the MOs and available resources. SAR Regions 

and their associated rescue coordination centers ensure operational coordination to effectively 

support civil SAR services. The Federal SAR Coordination Group may also be activated in support 

of the ESF #9 Overall Primary Agency designated for each event. When requested by a lead Federal 
Response Federal Interagency Operational Plan 

C.7-3 

agency and approved by the Secretary of Defense, DoD can provide SAR resources, including 

ground and air assets 

State-to-state SAR assistance is requested by the affected state through the EMAC. Other local SAR 

resources are requested by the affected locality through other mutual aid and assistance agreements. 

Non-Federal SAR resources are, as appropriate, incorporated into any coordinated SAR operations. 

The Federal ESF #9 Primary and Support Agencies provides US&R, maritime/coastal/waterborne 

SAR, and land SAR resources. SAR activities include monitoring distress alerts, locating distressed 

personnel, coordinating rescue efforts, extricating or evacuating survivors, and providing initial 

medical assistance. Rescued individuals are transported to temporary holding areas or points of 

safety for triage, emergency life sustaining treatment prior, to transport a more permanent care 

location. 

SAR personnel also provide support with documenting the location of the deceased. If human 

remains are located during SAR operations, SAR personnel will notify the Incident Commander to 

ensure proper relocation. 

During sustained response operations, additional SAR resources may be activated and rotated in to 

provide continuous operations. DOS and the USAID/Office of Foreign Disaster Assistance 

coordinate the use and employment of international SAR assets/resources if the level of response will 

overwhelm the national capability as stated in the International Assistance System. 

Phase 3a 

The transition to recovery, in most instances, eliminates the need for Mass SAR Operations core 

capability services. Federal SAR operations continue until all “reasonable hope of rescuing survivors 

has passed”27 and the determination to cease SAR operations has been made by the agency having 

jurisdiction. By the start of recovery, operations have transitioned to search and recovery of fatalities. 

Remains Recovery Reconnaissance teams may be assembled from local, state, tribal, territorial, 

insular area, and Federal entities. 

Coordinating Structure 

Many ESFs support the Mass SAR Operations core capability. The ESFs that perform tasks under 

this core capability are summarized in Figure C.7-1. Specific tasks conducted by these ESFs are 

identified in the Tasks by Phase, by ESF section below. 

 

27 National Search and Rescue Plan of the United States. 
Response Federal Interagency Operational Plan 

C.7-4 

Figure C.7-1: Coordination of ESF Support to Mass Search and Rescue Operations 

ESF #9 provides the delivery of this core capability. The Primary Agencies overseeing Federal SAR 

operations are FEMA, USCG, DOI/National Park Service (NPS), and DoD. SAR consists of different 

operational environments requiring different coordination. 

Accordingly, for every incident, the ESF #9 coordinator assesses the specific SAR requirements and 

designates one of the four Primary Agencies as the Overall Primary Agency for SAR for that 

particular incident. When assigned as the Overall Primary Agency for a particular incident, that 

organization: 

 Coordinates planning and operations between Primary and Support Agencies 

 Coordinates resolution of conflicting operational demands for SAR response resources 

 Provides representation to appropriate incident facilities (e.g., NRCC, RRCC, JFO, EOCs). 

All ESF #9 Primary Agencies provide support to the designated Overall Primary Agency as required. 

Structural Collapse Urban Search and Rescue 

Structural Collapse US&R includes operations for natural and other disasters and catastrophic 

incidents, as well as other structural collapse operations that primarily require FEMA US&R task 

force operations. The National US&R Response System integrates FEMA US&R task forces, 

Incident Support Teams (IST), and technical specialists. The Federal US&R response integrates 

FEMA task forces in support of unified SAR operations conducted following the U.S. National SAR 

Plan, which is the policy guidance of the signatory Federal departments and agencies for 

coordinating SAR services to meet domestic needs and international commitments. ISTs provide 

coordination and logistical support to US&R task forces during emergency operations. They also 
Response Federal Interagency Operational Plan 

C.7-5 

conduct needs assessments and provide technical advice and assistance to local, state, tribal, 

territorial, and insular area government emergency managers. 

Maritime/Coastal/Waterborne Search and Rescue 

Maritime SAR includes operations for natural and other disasters that primarily require USCG air, 

ship, boat, and response team operations. USCG develops, maintains, and operates rescue facilities 

for SAR in waters subject to U.S. jurisdiction and is designated the Primary Agency for maritime 

SAR. USCG staffing at area, district, and local Sector Command Centers promotes interagency 

coordination with local, state, tribal, territorial, and insular area emergency managers during 

incidents requiring a unified SAR response in which maritime SAR resource allocation is required. 

Land Search and Rescue 

Land SAR includes operations that require DoD and DOI/NPS aviation and ground forces to meet 

MOs, excluding maritime/coastal/waterborne and structural collapse SAR operations. Examples 

include a wide-area land SAR, wilderness SAR, volcanic eruption, or CBRNE incident. DOI/NPS 

maintains preconfigured teams that include personnel and equipment from DOI/NPS, U.S. Fish and 

Wildlife Service, USGS, Bureau of Indian Affairs, and other DOI components. 

ESFs that provide support to the delivery of the Mass SAR Operations core capability are included in 

the following section. 

Mass Search and Rescue Operations Tasks 

Mission Objectives 

 MS-MO-1: Coordinate operational efforts with local, regional, national, and international SAR 

teams. (Supports MS-Critical Task-3) 

 MS-MO-2: Inventory existing personnel and conduct just-in-time training to provide a surge 

capacity for SAR operations. (Supports MS-Critical Task-1) 

 MS-MO-3: Identify, activate, and deploy Federal personnel and resources needed to support SAR 

operations. (Supports MS-Critical Task-1, MS-Critical Task-2) 

 MS-MO-4: Conduct community-based SAR operations, in close coordination with the affected 

jurisdictions, and in synchronization with personnel from local, regional, national, and 

international SAR teams. (Supports MS-Critical Task-1, MS-Critical Task-2, MS-Critical Task3) 

Phase 1a—Normal Operations 

End State: Local, regional, and national SAR personnel have been inventoried and trained. (Supports 

MS-MO-2) 

 Tasks by Phase, by ESF 

 ESF #9 

 Evaluate the state of operational readiness of Federal SAR resources by assessing 

personnel training and inventorying deployable assets. 

 Ensure Federal SAR resources are available for activation. 

 Ensure that an adequate amount of technical specialists required for support are rostered, 

trained, and available for deployment. 
Response Federal Interagency Operational Plan 

C.7-6 

 Ensure that Federal ESF #9 resources are able to mobilize for rapid deployment and can 

be self- sufficient for 72 hours (with approved equipment and supplies list) for a response 

assignment of up to 14 days. 

 Coordinate, exercise, and integrate the appropriate ESF #9 Primary Agencies (FEMA, 

USCG, NPS, and DoD), the National SAR Plan components (U.S. Northern 

Command/NORAD [Alaska], USCG Maritime [SAR Regions and Hawaii], NPS, Air 

Force [Continental United States other than Alaska]), the NRF, the U.S. National SAR 

Supplement, and Catastrophic Incident SAR Addendum to ensure seamless operations 

during a crisis. 

Phase 1b—Elevated Threat 

End State: Additional planning, training, and exercises have been conducted in coordination with 

local, regional, and national entities. (Supports MS-MO-1, MS-MO-2) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. These include any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Personnel and resources have been identified and pre-deployed to staging areas. (MS-MO3) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. These include any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Personnel and resources have been identified, inventoried, activated, and deployed to the 

impacted area. Coordinated SAR operations have begun. (Supports MS-MO-2, MS-MO-3, MS-MO4) 

 Tasks by Phase, by ESF 

 ESF #1 

 Perform activities conducted under the direct authority of DOT elements as they relate to 

aviation, maritime, surface, railroad, and transportation to assist in the provision of the 

SAR assets. 

 ESF #2 

 Coordinate Federal actions to assist industry in stabilizing and reestablishing the public 

communications infrastructure thereby allowing alerts, which will facilitate the 

dissemination of instructions relative to the delivery of SAR information to the public. 

 Provide communications support to the JFO and any JFO field teams which assist in the 

coordination of the opening and staffing of emergency shelters. 

 ESF #3 

 Provide structural engineering expertise in support of SAR efforts to ensure the safety of 

responders and/or survivors. 
Response Federal Interagency Operational Plan 

C.7-7 

 Assist with debris removal to allow US&R teams to gain access to survivors trapped 

within collapsed structures. 

 ESF #4 

 Provide equipment and supplies from the National Interagency Cache System and use of 

National Interagency Fire Center contract aircraft during incidents, based on standby 

agreements and contingency plans. 

 ESF #8 

 Coordinate with the Incident Commander and the assigned IMAT to move the rescued 

and/or injured. 

 Respond to medical needs associated with physical and mental health, behavioral health, 

and substance abuse of both incident survivors and response workers. 

 Provide veterinary medical support to SAR dogs when organic veterinary medical 

support requires augmentation. 

 ESF #9 

 Activate headquarters and regional-level ESF #9 coordinators: for structural collapse 

SAR operations, designate FEMA as the ESF #9 Overall Primary Agency; for 

maritime/coastal/waterborne SAR operations, designate USCG as the ESF #9 Overall 

Primary Agency; and for land SAR operations, designate either DOI/NPS or DoD as the 

ESF #9 Overall Primary Agency. 

 Activate the ESF #9 Federal SAR Coordination Group to be assigned to the Operations 

Section of the IMAT/JFO to assist with strategic Federal SAR planning, operations, and 

coordination of SAR issues from the field. 

 Coordinate dialogue with the JFO on the identification and coordination of any EMAC 

SAR resources. 

 Assign ESF #9 Liaison Officers to all locations/entities requested (e.g., RRCCs, state 

EOCs, IMATs, JFOs). 

 Activate USACE structural specialist support for US&R task forces for deployment to, 

and employment in, the affected area. 

 Coordinate and execute PSMAs (if required) for FEMA Logistics and other Federal 

resources required by SAR to support field operations. 

 In conjunction with LMD personnel and DoD and USCG liaisons, coordinate the 

following potentially available air transport in conjunction with the Transportation and 

Movement Coordination Group at the NRCC: DoD aircraft (when mission assigned); 

USCG aircraft; commercial air transport providers. 

 Coordinate with LMD to ensure that ground transport, sufficient to meet requirements for 

Federal SAR resources arriving by air, is in place at reception airport(s). 

 Determine if sufficient material handling equipment capability to meet requirements is in 

place at reception airport(s) before arrival of Federal SAR resources. 

 Deploy, employ, and maintain shared situational awareness of Federal SAR resources 

and other mission-assigned or mutual aid SAR resources. 
Response Federal Interagency Operational Plan 

C.7-8 

 Activate appropriate Federal SAR resources for deployment to and employment in the 

affected area. 

 Once activated, depart jurisdiction, arrive at impact area and begin conducting SAR 

operations within 12–16 hours. 

 Coordinate the mission assignment of other Federal Government SAR resources. 

 Coordinate through the FEMA Transportation Movement and Coordination Group for 

transportation of personnel and equipment. 

 Obtain and execute strategic objectives for coordination of SAR resources. 

 Issue a mission assignment to USCG for aviation and marine SAR support requirements. 

 Issue a mission assignment requesting that DoD fulfill aviation SAR requirements and 

provide additional resources as force multipliers to support FEMA US&R resources. 

 ESF #13 

 Provide force protection capabilities to deployed SAR resources. 

Phase 2b—Deployment 

End State: Additional Federal personnel and resources have been deployed to conduct communitybased SAR operations, supplementing existing regional and national teams. (Supports MS-MO-1, 

MS-MO-2) 

 Tasks by Phase, by ESF 

 ESF #1 

 Monitor and report status of and damage to the transportation system and infrastructure 

as a result of the incident. 

 Identify temporary alternative transportation solutions that can be implemented by others 

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

 ESF #5 

 Activate ESF #9 at the national and regional level to provide coordination and technical 

assistance. 

 ESF #8 

 Coordinate the hand-off between SAR and medical triage/treatment system. 

 ESF #9 

 Identify reception airports for Federal SAR resources. 

 Coordinate to move the rescued and injured. 

 Coordinate with the local Incident Commander and the assigned IMAT team. 

 Continually evaluate incident objectives and strategic priorities, and determine what 

additional resources will be required. 

 Coordinate with LMD to ensure that material handling equipment capability is sufficient 

to meet requirements and is in place at reception airport(s) prior to the arrival of US&R 

resources. 
Response Federal Interagency Operational Plan 

C.7-9 

 Provide and coordinate resources and personnel to perform operational and tactical SAR 

services. 

 ESF #15 

 Provide incident-related information through the media and other sources in accessible 

formats and multiple languages to the impacted population, including individuals with 

access and functional needs, such as individuals with disabilities as well households, 

businesses, and industries directly or indirectly affected by the incident. 

Phase 2c—Sustained Response 

End State: Final SAR operations have been conducted, utilizing surge capacity, as needed. (Supports 

MS-MO-4) 

 Tasks by Phase, by ESF 

 ESF #9 

 Determine the need to rotate Federal SAR resources and other SAR resources to allow 

personnel to rest and maintain capability. 

 Integrate additional out-of-state resources provided through EMAC and develop a 

strategy for augmenting or replacing the current Federal resources employed in the 

response. 

 Provide reports on the status SAR operations and objectives to maintain a shared 

situational awareness. 

 Identify areas where objectives have been achieved and reposition or demobilize 

personnel, when appropriate. 

Phase 3a—Short-term Recovery 

End State: SAR operations have concluded and remaining activities are transitioned to recovery 

operations. (Supports MS-MO-4) 

 Tasks by Phase, by ESF 

 ESF #9 

 Assist with the transition from SAR operations to search and recovery issues. 

Administration and Support 

SAR resources will comply with existing procedures for activation, notification, deployment, and 

deactivation. 

The following legal agreement pertains to the Mass SAR Operations core capability: 

U.S. National Search and Rescue Committee Interagency Agreement provides for a Federal-level 

Committee to coordinate civil SAR matters of interagency partner interest within the United States 

Member agencies include: DHS, DoD, DOT, Department of Commerce, DOI, National Aeronautics 

and Space Administration, and the FCC.28

 

28 United States National Search and Rescue Committee Interagency Agreement (2007). 
Response Federal Interagency Operational Plan 

C.7-10

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Response Federal Interagency Operational Plan 

C.8-1 

Appendix 8 to Annex C: On-scene Security, Protection, and 

Law Enforcement 

Purpose 

The purpose of this appendix is to describe the delivery of the On-scene Security, Protection, and 

Law Enforcement core capability. 

The On-scene Security, Protection, and Law Enforcement core capability ensures a safe and secure 

environment through law enforcement and related security and protection operations for people and 

communities located within affected areas and also for all traditional and atypical response personnel 

engaged in lifesaving and life-sustaining operations. 

The On-scene Security, Protection, and Law Enforcement (OP) critical tasks are as follows: 

 OP-Critical Task-1. Establish a safe and secure environment in an affected area. 

 OP-Critical Task-2. Provide and maintain on-scene security and meet the protection needs of 

the affected population over a geographically dispersed area while eliminating or mitigating the 

risk of further damage to persons, property, and the environment. 

Situation 

To ensure a safe and secure environment for all people and communities located within a designated 

disaster area, it is necessary to provide and maintain on-scene security to meet the protection needs of 

the affected population and eliminate or mitigate the risk of further damage to property. On-scene 

security also provides protection for all traditional and atypical response personnel engaged in 

lifesaving and life-sustaining operations. 

In order to provide effective protection, local, state, tribal, territorial, and insular area law 

enforcement will require additional capabilities and resources including, but not limited to, force and 

critical infrastructure protection services, security planning and technical assistance, technological 

support, and general supplemental law enforcement personnel. 

The mission of incident responders must be clear upon the deployment of any Federal support to an 

affected area under mutual aid agreements, the Stafford Act, the Emergency Federal Law 

Enforcement Assistance Act, or other proper authorities. Federal law enforcement activities are 

severely limited without specific statutory authority or authorization by the Chief Executive Officer 

of the state where the emergency has occurred. In order to enforce state and local laws and 

ordinances, including making arrests, Federal law enforcement personnel must be acting pursuant to 

an express authorization under either Federal or state law, and the Federal officers must comply with 

the Purpose Act, 31 U.S.C. § 1301(a) (2006), which requires that Federal funds be used for a 

particular object or purpose authorized by a law. Indemnification issues must be resolved prior to any 

deployment. 

When Federal law enforcement support is authorized to act in a declared disaster area pursuant to 

ESF #13, under the NRF, it is important that agents operate with clear guidance on the use of force, 

up to and including deadly force. In the absence of direction by the Attorney General to the contrary, 

Federal law enforcement agents will continue to employ the use of force policy of their originating 

department or agency. 

Insufficient resources can greatly impact the ability of responders to protect people and property. 

Logistical management is a key to a successful engagement by Federal law enforcement. In addition, 
Response Federal Interagency Operational Plan 

C.8-2 

shortages in interoperable communications systems would severely limit the ability to communicate 

and coordinate across all levels of a response initiative. Insufficient equipment (e.g., Global 

Positioning System navigation) to navigate an environment with destroyed or severely damaged 

infrastructure is another potential logistical shortfall which would limit the ability of law enforcement 

personnel to navigate the incident area where security and protection are needed. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. 

Mission 

Federal interagency partners will support the jurisdiction in their responsibility to establish a safe and 

secure environment in the affected area by providing and maintaining the protection needs of the 

affected population, while eliminating or mitigating the risk of further damage to persons, property, 

and the environment. 

Execution 

Concept of Operations 

Phase 1 

DOJ’s Bureau of Alcohol, Tobacco, Firearms, and Explosives (ATF) is the ESF #13 Primary 

Coordinating Agency, responsible for developing operational and tactical plans, and coordinating 

planning, training, and exercises with state ESF #13 Coordinators and other relevant emergency 

management personnel. To provide surge capacity in the event of an emergency or disaster, DOJ 

Regional Law Enforcement Coordinators coordinate with local, state, tribal, territorial, and insular 

area officials to assess capabilities and expected needs in the event of a disaster. State laws will be 

examined to determine whether and under what circumstances Federal law enforcement may exercise 

state or local law enforcement authority in the state and any mechanism to grant further authorities to 

responding Federal agents. In addition, the department collects information and analyzes 

incongruities between local, state, tribal, territorial, and insular area law enforcement guidelines to 

prepare for potential engagement by Federal law enforcement personnel. 

Phase 2 

ESF #13 Field Support Teams, led by a Special Agent Regional Law Enforcement Coordinator, 

conduct an assessment of the impacted area and identify resource needs and requirements. Liaison 

Officers are deployed to the NRCC, activated RRCCs, and JFOs, and Field Support Teams are 

deployed to state EOCs to determine public safety and security needs in support of the governor’s 

request pursuant to the Stafford Act. ESF #13 does not assume responsibility for investigative aspects 

related to an incident. 

The ATF, working through FEMA, may utilize existing Federal contracts with private sector entities 

to provide security personnel and secure transportation assets (e.g., rental cars for law enforcement 

use) based on incident requirements. 

The ability of Federal law enforcement personnel to integrate with local, state, tribal, territorial, and 

insular area components depends on their authority to enforce local, state, tribal, territorial, and 

insular area laws and ordinances. Any Federal enforcement of local, state, tribal, territorial, and 

insular area laws and ordinances will require specific statutory authority that expressly provides 

Federal Law Enforcement Officers (FLEO) with the ability to enforce such laws, either through 
Response Federal Interagency Operational Plan 

C.8-3 

direct statutory grants of authority to FLEOs or express deputation statutes. Without such statutory 

authority, FLEOs do not have the authority to enforce those laws. 

Phase 3a 

ESF #13 Federal departments and agencies continue to develop and maintain relationships with local, 

state, tribal, territorial, and insular area law enforcement officials throughout the remainder of 

response and recovery operations to determine any additional security or law enforcement needs. 

Federal law enforcement departments and agencies continue to support the local law enforcement 

agency until it is capable of transitioning to full control. 

Coordinating Structure 

Many ESFs support the On-scene Security, Protection, and Law Enforcement core capability. The 

ESFs that perform tasks under this core capability are summarized in Figure C.8-1. Specific tasks 

conducted by these ESFs are identified in the Tasks by Phase, by ESF section below. 

Figure C.8-1: Coordination of ESF Support to On-scene Security, Protection, and Law 

Enforcement 

Local law enforcement responsibility and authority rests with local, state, tribal, territorial, and 

insular area law enforcement departments and agencies. During disasters or acts of terrorism, when 

these departments and agencies are overwhelmed and unable to fulfill their public safety and security 

missions, additional resources should be obtained through mutual aid and assistance agreements such 

as the EMAC and/or activation of the state National Guard. Once it is determined that these means of 

support are exhausted, unavailable or inadequate, Federal public safety and security needs can be 

supported by a request through ESF #13. 
Response Federal Interagency Operational Plan 

C.8-4 

ESF #13 provides the primary support to the delivery of this core capability. The Primary Agency 

responsible for coordination is the DOJ/ATF, with assistance from other DOJ components, including 

the Drug Enforcement Administration, FBI, Bureau of Prisons, and U.S. Marshals Service, as 

required. ESF #13 utilizes resources from many of the Federal law enforcement departments and 

agencies within the United States through the whole of the Federal law enforcement community. 

These supporting departments and agencies provide technical subject matter expertise, data, 

equipment, and staff support for operations, as requested by ESF #13. 

DOJ coordinates all ESF #13 activities at the national level and across all 10 FEMA regions. 

ESF #13 liaison personnel are deployed to staff the NRCC, RRCCs, JFO, and/or state EOCs during 

activations and/or to other EOCs, when required. ATF, in coordination with ESF #13 supporting 

departments and agencies, coordinates with various operations centers, as necessary. 

Private sector/nongovernmental security forces continue to perform their assigned safety and security 

missions to the best of their ability. All departments and agencies retain authority over their 

personnel, but operational command may be shifted during the incident to coordinate response. 

When necessary, the Attorney General will appoint a Senior Federal Law Enforcement Official to 

coordinate all Federal law enforcement, public safety, and security operations. The Senior Federal 

Law Enforcement Official serves as a member of the UCG and is responsible for ensuring that law 

enforcement requirements and resource allocations are coordinated with other components of the 

UCG. Under such circumstances, the Senior Federal Law Enforcement Official may rely on ESF #13 

Liaison Officers’ and Field Support Teams’ assessments when planning the Federal law enforcement 

response, including whether Federal Law Enforcement Coordination Centers are needed. The Senior 

Federal Law Enforcement Official will identify, for example, whether Federal resources are needed 

to move prisoners, protect critical infrastructure, or conduct security planning. 

ESFs that provide support to the delivery of the On-scene Security, Protection, and Law Enforcement 

core capability are included in the following section. 

On-scene Security, Protection, and Law Enforcement Tasks 

Mission Objectives 

 OP-MO-1: Coordinate planning and operational analysis, and locate and inventory equipment to 

deliver On-scene Security, Protection, and Law Enforcement. (Supports OP-Critical Task-1) 

 OP-MO-2: Analyze, prioritize, and allocate Federal law enforcement resources to support local, 

state, tribal, territorial, and insular area jurisdictions. (Supports OP-Critical Task-2) 

 OP-MO-3: Provide law enforcement functions, in support of local, state, tribal, territorial, and 

insular area jurisdictions, which may fall outside of traditional patrol and investigation duties. 

(Supports OP-Critical Task-1, OP-Critical Task-2) 

Phase 1a—Normal Operations 

End State: Equipment and personnel are maintained in a readiness state. Coordinated planning across 

Federal law enforcement departments and agencies, coupled with procedures for rapid recall and 

deployment of personnel have been established and exercised. (Supports OP-MO-1) 

 Tasks by Phase, by ESF 

 ESF #5 

 Review and update existing plans. 
Response Federal Interagency Operational Plan 

C.8-5 

 Conduct the appropriate technical security and/or vulnerability assessments. 

 Provide expertise and coordination for stakeholder security planning efforts and 

conducting technical assessments. 

 Develop PSMAs and contracts for providing security personnel and resources. 

 ESF #13 

 Provide mechanisms for vertical and horizontal coordination, communications, and 

information-sharing on a standardized platform accessible by all partners. 

 Synchronize planning, training and exercises, after-action reviews, and corrective action 

plans with local, state, tribal, territorial, insular area, and Federal partners. 

 Provide expertise and coordination for stakeholder security planning efforts and 

conducting technical assessments. 

 Plan, train, exercise, and organize to build, sustain, and improve operational capabilities 

within the whole community. 

 Coordinate with stakeholders and maintain situational awareness of their available 

resources to include personnel availability to assist in the public safety and security 

efforts. 

 Develop PSMAs with Federal departments and agencies to expedite the mission 

assignment process for providing supplemental personnel and resources. 

 Review and update existing response plans and standard operating procedures. 

 Develop operational objectives for coordination of Federal law enforcement resources. 

 Assist state law enforcement and government officials in determining the methodology 

by which FLEOs may be granted state law enforcement authority during ESF #13 

responses if statutory authority exists for such. 

Phase 1b—Elevated Threat 

End State: Federal law enforcement assets have been inventoried for recall, based upon pre-incident 

intelligence. (Supports OP-MO-1) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations 

Phase 1c—Credible Threat 

End State: Assessment teams have pre-deployed to staging areas, as needed. (Supports OP-MO-2) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, and 2b, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 
Response Federal Interagency Operational Plan 

C.8-6 

Phase 2a—Immediate Response 

End State: Local, state, tribal, territorial, and insular area law enforcement capabilities have been 

identified, and possible mission assignments are determined based upon operational objectives. 

(Supports OP-MO-2) 

 Tasks by Phase, by ESF 

 ESF #1 

 Contribute to shared situational awareness on the status of airports. 

 ESF #5 

 Coordinate alerts and notifications; staffing and deployment of DHS and FEMA response 

teams, as well as response teams from other Federal departments and agencies; incident 

action planning; operations; logistics management; direction and control; information 

collection, analysis, and management; facilitation of requests for Federal assistance; 

resource acquisition and management; Federal worker safety and health; facilities 

management; financial management; and other support as required. 

 Coordinate the use of remote sensing and reconnaissance operations, activation and 

deployment of assessment personnel or teams, and geospatial and GIS support needed for 

incident management. 

 Coordinate the provision of security for field operational structures (e.g., JFO, ISBs) and 

deployed FEMA assets. 

 Conduct the appropriate technical security and/or vulnerability assessments of field 

operational structures. 

 ESF #8 

 Provide veterinary medical support to deployed working animals (typically dogs and 

horses). 

 ESF #13 

 Activate a headquarters-level ESF #13 coordinator for Federal law enforcement 

operations. 

 Activate and deploy an ESF #13 Field Support Team to the affected area(s). The ESF #13 

Field Support Teams liaise with local, state, tribal, territorial, and insular area 

departments and agencies to determine law enforcement requirements. 

 Coordinate with local, state, tribal, territorial, and insular area jurisdictions to determine 

if law enforcement shortfalls are anticipated. 

 Determine availability of safety and security resources within all ESF #13 departments 

and agencies for potential deployments to the affected area. 

 Review laws and regulations in potentially affected jurisdictions to determine if explicit 

authority exists and/or if statutory deputation authority is available, needed, or advised. 

 Coordinate with ESF #7 to provide potential requirements for base camp and other 

resources for ESF #13 deployed personnel. 

 Coordinate with ESF #8 to provide additional security in support of medical assets and 

staff. 
Response Federal Interagency Operational Plan 

C.8-7 

 Provide status reports on Federal law enforcement capabilities, deployments, and 

operations throughout the affected area(s). 

 Deploy additional Federal law enforcement assets and personnel when requested and 

approved. 

 Identify law enforcement shortfalls and the need for mission assignment assistance 

through ESF #13. 

 Coordinate with other Federal departments and agencies to identify additional security 

requirements or unidentified shortfalls. 

 Coordinate logistical support to Federal law enforcement resources to support field 

operations. 

‒ Give priority to lifesaving missions first, followed by missions that address security 

and the protection of infrastructure/property. 

‒ Activate and deploy general and specialized Federal law enforcement resources to 

support local, state, tribal, territorial, insular area, and Federal law enforcement 

departments and agencies overwhelmed by disasters or acts of terrorism. 

Phase 2b—Deployment 

End State: Federal law enforcement resources and capabilities have been prioritized, activated, and 

deployed in support of local, state, tribal, territorial, and insular area entities. (Supports OP-MO-2, 

OP-MO-3) 

 Tasks by Phase, by ESF 

 ESF #1 

 Initiate deployment of Transportation Security Forward Team (Transportation Security 

Officers) if required by the Transportation Security Advance Team. 

 ESF #2 

 Coordinate Federal actions to assist industry in stabilizing and reestablishing the public 

communications infrastructure thereby allowing alerts, which will facilitate the 

dissemination of instructions relative to the delivery of On-scene Security, Protection, 

and Law Enforcement information to the public. 

 ESF #5 

 Activate ESF #5 at the national and regional level to provide coordination and technical 

assistance. 

 ESF #8 

 Provide counseling and basic psychological support, ensure chain of custody of evidence, 

and fingerprint the remains to identify fatalities. 

 ESF #10 

 Secure access to oil/hazardous materials contaminated areas, through EPA/USCG OSCs 

and local, state, tribal, territorial, and insular area law enforcement officials. EPA’s 

National Criminal Enforcement Response Team may assist ESF #10 in coordinating with 

law enforcement officials (and also supports ESF #13 as needed). 
Response Federal Interagency Operational Plan 

C.8-8 

 ESF #13 

 Deploy ESF #13 Field Support Teams to coordinate with local, state, tribal, territorial, 

and insular area partners, assess law enforcement capabilities, and provide situational 

awareness for determining operations objectives. 

 Coordinate with local, state, tribal, territorial, and insular area jurisdictions to evaluate 

changes in security requirements within the affected area. 

 Deploy Federal law enforcement resources and capabilities in support of local, state, 

tribal, territorial, insular area, and Federal authorities. 

 Provide security forces and establish protective measures around the incident site, critical 

infrastructure, and/or critical facilities. 

 Provide force protection services for the protection of emergency responders and other 

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

emergency response operations wherever they may occur. 

 Provide specialized LE assets to support state and local LE as needed. 

 Assist state and local law enforcement in conducting perimeter enforcement in quarantine 

zones during an animal health emergency. 

 ESF #15 

 Coordinate and provide public messaging on movement restrictions and curfews to keep 

the public informed and provide crowd control. 

Phase 2c—Sustained Response 

End State: Federal law enforcement support to local, state, tribal, territorial, and insular area law 

enforcement entities has been provided. Deployed Federal resources have been re-tasked upon 

completion of mission assignments, as appropriate. (Supports OP-MO-1, OP-MO-2, OP-MO-3) 

 Tasks by Phase, by ESF 

 ESF #11 

 Coordinate with ESF #13 to ensure protection/provide security for sensitive records in all 

formats. 

 ESF #13 

 Assess projected local, state, tribal, territorial, and insular area law enforcement shortfalls 

and operational objectives that have been achieved based on information provided by 

those departments and agencies. 

 Determine if additional resources are needed or if current resources should be redeployed 

to other areas or demobilized. 

 Augment resources and capabilities for Federal operations and in support of local, state, 

tribal, territorial, and insular area authorities. 

 Rotate out Federal law enforcement resources as needed to minimize fatigue and 

maintain capabilities. 

 In cases in which the Federal Government exercises primary law enforcement and 

security responsibilities, determine operational strategy for transitioning primary law 
Response Federal Interagency Operational Plan 

C.8-9 

enforcement and security responsibilities to local, state, tribal, territorial, and insular area 

law enforcement officers. 

Phase 3a—Short-term Recovery 

End State: Through continued operational analysis, local, state, tribal, territorial, and insular area law 

enforcement needs have been reviewed and assessed to determine when Federal law enforcement 

demobilization is required. (Supports OP-MO-1, OP-MO-2) 

 Tasks by Phase, by ESF 

 ESF #13 

 Begin orderly transition to demobilization and transition of law enforcement functions to 

local, state, tribal, territorial, and insular area authorities. 

Administration and Support 

All On-scene Security, Protection, and Law Enforcement core capability stakeholders will follow 

their predefined activation, notification, deployment, and deactivation procedures. 
Response Federal Interagency Operational Plan 

C.8-10

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Response Federal Interagency Operational Plan 

C.9-1 

Appendix 9 to Annex C: Fire Management and Suppression

Purpose 

The purpose of this appendix is to describe the delivery of the Fire Management and Suppression 

core capability. 

The Fire Management and Suppression core capability provides structural, wildland, and specialized 

firefighting capabilities in order to manage and suppress fires of all types, kinds, and complexities 

while protecting the lives, property, and environment in the affected area. 

The Fire Management and Suppression (FS) critical tasks are as follows: 

 FS-Critical Task-1. Provide traditional first response or initial attack firefighting services based 

on the requirements of local, state, and Federal authorities. 

 FS-Critical Task-2. Conduct expanded or extended attack firefighting and support operations 

through coordinated response of fire management and specialized fire suppression resources. 

 FS-Critical Task-3. Ensure the coordinated deployment of appropriate local, regional, national, 

and international fire management and fire suppression resources to reinforce firefighting efforts 

and maintain an appropriate level of protection for subsequent fires. 

Situation 

Fire causes, and is caused by, many of the disasters and emergencies in our Nation. The management 

and suppression of fires is a key lifesaving aspect of many responses. The Federal Government may 

support to local, state, tribal, and territorial firefighting efforts by providing firefighting resources 

including but not limited to wildland firefighting resources, structural firefighting resources, and 

incident management resources. 

Firefighting is an inherently local responsibility. Local fire resources often receive assistance from 

other fire departments/agencies through established mechanisms identified in local mutual aid 

agreements. Further assistance may be obtained through an established intrastate mutual aid system. 

If additional assistance is required, firefighting resources can be requested from other jurisdictions 

through processes established under mutual aid agreements, state-to-state or regional compacts, or 

other agreements. If the governor of the affected state has declared an emergency, firefighting 

resources may be requested through the Emergency Management Assistance Compact (EMAC). 

If the President has declared an emergency or major disaster under the Stafford Act, firefighting 

resources may also be requested through ESF #4. Using existing authorities and agreements, ESF #4 

can mobilize wildland and structure firefighting resources from across the country and from several 

foreign countries through the existing firefighting mobilization system to incidents anywhere in the 

United States. The existing mobilization system is managed by the USDA Forest Service. 

USDA Forest Service is co-coordinator and primary agency for ESF #4, and coordinates at the 

national and regional levels with the Federal Emergency Management Agency (FEMA); appropriate 

state, tribal, territorial, and insular area agencies; and cooperating agencies on issues related to 

response activities. 

FEMA/U.S. Fire Administration is co-coordinator and a support agency for ESF #4 and coordinates 

with appropriate state, tribal, territorial and insular area agencies and local fire departments to expand 

structural firefighting resource capacity in the existing mobilization system and provide information 

on protection of emergency services sector critical infrastructure. 
Response Federal Interagency Operational Plan

C.9-2

Assumptions

General assumptions for the Response FIOP have been identified in the base plan.

Mission

Federal interagency partners will initiate and conduct firefighting operations based on the 

requirements of local, state, tribal, territorial, and insular area authorities. These Federal interagency 

partners will also ensure synchronization of deployed Federal, Regional, local, and international 

firefighting resources to reinforce ongoing firefighting efforts and maintain an appropriate level of 

protection for subsequent fires. 

Execution

Concept of Operations

General 

 ESF #4 coordinates Federal firefighting activities and provides firefighting personnel, equipment, 

and supplies in support of local, state, and tribal wildland, rural, and urban firefighting agencies 

nationwide. 

 ESF #4 uses established firefighting and support organizations, processes, and NIMS procedures 

as outlined in the National Interagency Mobilization Guide to mobilize wildland, structural and 

specialized firefighting resources. All requests for firefighting resources are coordinated through 

the existing mobilization system managed by USDA/Forest Service. Responsibility for situation 

assessment and determination of resource needs lies primarily with the local Incident 

Commander.

 Both wildland and structural firefighting resources can be mobilized through the existing 

mobilization system. The mobilization of specialized or additional structural firefighting 

resources not populated in the Resource Ordering and Status System (ROSS) can be 

accomplished manually using NIMS procedures through the appropriate Geographic Area 

Coordination Center (GACC) and local dispatch center(s).

 Resources provided through ESF #4 are guided by the U.S. Forest Service Foundational Doctrine 

for All-Hazard Response and NIMS.

 States have the option of requesting intrastate and interstate firefighting assistance and resources, 

both utilizing existing agreements. Intrastate resources would be requested under local or 

statewide mutual aid and assistance agreements. Interstate resources, including National Guard 

firefighting resources from other states, would be requested through the Emergency Management 

Assistance Compact, other compacts, or state-to-state mutual aid and assistance agreements. 

 Upon receiving a Mission Assignment, requests for Federal assistance in obtaining firefighting 

resources are transmitted from the Regional Response Coordination Center (RRCC) or Joint 

Field Office (JFO) ESF #4 representative to the appropriate GACC. For resources beyond those 

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

Coordination Center (NICC) in Boise, ID, by the GACC Coordinator. The NICC contacts the 

national ESF #4 coordinator in the event of national-level shortages or unavailability of needed 

resources. 
Response Federal Interagency Operational Plan

C.9-3

 All Federal military personnel and resources for firefighting and incident management activities 

will be requested through the NICC in coordination with the Defense Coordinating Officer and 

the NRCC. 

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

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

Resiliency Group (DRG). 

 Actual firefighting operations are managed at the local level under the ICS element of the NIMS. 

 Situation and damage assessment information is transmitted through established channels and 

directly between the headquarters-level and regional-level response support structures according 

to NIMS procedures.

Organization

ESF #4 has a parallel structure at the national and regional levels. 

Headquarters-Level Response Support Structure 

 The ESF #4 Primary Agency provides subject matter expertise to the DRG and to other 

departments/agencies at the headquarters level. Based on recommended Department of 

Homeland Security (DHS)/FEMA requirements, ESF #4 may be operational on a 24-hour basis. 

 While operational, ESF #4, through the NRCC, provides subject-matter expertise as needed to 

FEMA and other ESFs. DOI, USFA, and other Support Agencies have representatives available 

at the NRCC or by telephone or pager on a 24-hour basis while ESF #4 is operational. 

 The NICC provides national logistics support and mobilization of national firefighting resources. 

Regional-Level Response Support Structure 

 The ESF #4 Primary Agency regional/area office coordinates Federal firefighting response 

support and is responsible for establishing and maintaining coordination with regional support 

agencies, regional FEMA officials, the JFO, and the ESF #4 Primary Agency at the headquarters 

level. 

 While operational, ESF #4, through the RRCC/JFO, provides subject matter expertise as needed 

to FEMA and other ESFs. DOI, USFA, and other Support Agencies have representatives 

available at the RRCC/JFO or by telephone or pager on a 24-hour basis while ESF #4 is 

operational. 

 GACCs provide regional firefighting response, mobilization of resources, and logistics support. 

Notification 

Upon notification of a potential or actual event requiring ESF #4 response, the ESF #4 Primary 

Agency notifies the ESF #4 Primary Agency regional/area office, the NICC, DOI, USFA, and other 

Support Agencies, and the USDA. 

National preparedness levels for wildland fire suppression planning are established by the National 

Multiagency Coordinating Group (NMAC) in the National Interagency Mobilization Guide. When 

competition for wildland fire resources occurs which may impact response to all-hazards incidents, 

the NMAC will establish wildland fire priorities, making decisions on resource allocations. 

USDA Forest Service coordinates at the national and regional levels with FEMA, appropriate state, 

territorial, tribal, and insular area agencies, and cooperating agencies on all issues related to response 

activities.
Response Federal Interagency Operational Plan

C.9-4

FEMA/U.S. Fire Administration coordinates with appropriate state, territorial, tribal, and insular 

agencies and local fire departments to expand structural firefighting resource capacity in the existing 

national firefighting mobilization system and provide information on protection of emergency 

services sector critical infrastructure.

Phase 1

National preparedness levels for wildland fire suppression planning are established by the National 

Multiagency Coordinating Group (NMAC) in the National Interagency Mobilization Guide. When 

competition for wildland fire resources occurs which may impact response to all-hazards incidents, 

the NMAC will establish wildland fire priorities, making decisions on resource allocations. 

USDA Forest Service coordinates at the national and regional levels with FEMA, appropriate state, 

territorial, tribal, and insular area agencies, and cooperating agencies on all issues related to response 

activities.

FEMA/U.S. Fire Administration coordinates with appropriate state, tribal, territorial, and insular 

agencies and local fire departments to expand structural firefighting resource capacity in the existing 

mobilization system and provide information on protection of emergency services sector critical 

infrastructure.

Phase 2

Initial Response Actions: 

 The ESF #4 Primary Agency: 

 Reports to the NRCC. Establishes communication links with DOI, USFA, and other Support 

Agencies, the USDA Emergency Operations Center, the National Director for Fire and 

Aviation Management at USDA/Forest Service Headquarters, and USDA/Forest Service 

Assistant Director Operations at the NIFC. Establishes communication links with the 

appropriate regional/area ESF #4 coordinator(s). 

 Obtains an initial fire situation and damage assessment through established intelligence 

procedures; determines the appropriate management response to meet the request for 

assistance; and obtains and distributes, through appropriate channels, incident contact 

information to emergency responders mobilized through ESF #4. 

 Coordinates all requests for wildland or structural firefighting resources through the existing 

national firefighting mobilization system.

 Analyzes each request before committing people and other resources; ensures employees will 

be provided with appropriate vaccinations, credentials, and PPE to operate in the all-hazard 

environment to which they are assigned; and ensures that all employees involved in allhazard response will be supported and managed by an agency leader, agency liaison, or 

interagency Incident Management Team. 

 Ensures that an all-hazard incident-specific briefing and training are accomplished prior to 

task implementation. This preparation will usually occur prior to mobilization where incident 

description, mission requirements, and known hazards are addressed. Key protective 

equipment and associated needs for tasks that employees do not routinely encounter or 

perform will be identified. 

Continuing Response Actions: 

 The ESF #4 Primary and Support Agencies, as appropriate: 
Response Federal Interagency Operational Plan

C.9-5

 Obtain, maintain, and provide incident situation and damage assessment information through 

established procedures.

 Provide assistance with assessment of impacted emergency services sector critical 

infrastructure.

 Coordinate incident resource needs, and determine and resolve, as necessary, issues regarding 

resource shortages and resource ordering issues. 

 Maintain close coordination through the NRCC with the DRG, RRCC, support agencies, 

NICC, and JFO. 

 Maintain a complete log of actions taken, resource orders, records, and reports. 

Phase 3a

Federal firefighting support is primarily a response function. Efforts should be made to ensure that 

firefighting resources are managed and utilized appropriately so they can be available for 

assignments involving lifesaving, incident stabilization, and protection of property, critical 

infrastructure, and the environment. Otherwise, the Nation’s capability to respond to new 

emergencies may be compromised. ESF #4 may provide support to enhance the resilience of local,

state, and tribal firefighting agencies.

Coordinating Structure

ESF #4 is the main provider of the Fire Management and Suppression core capability. The ESFs that 

perform tasks under this core capability are summarized in Figure C.9-1. Specific tasks conducted by 

these ESFs are identified in the Tasks by Phase, by ESF section below.
Response Federal Interagency Operational Plan 

C.9-6 

Figure C.9-1: Coordination of ESF Support to Fire Management and Suppression. 

Fire Management and Suppression Tasks 

Mission Objectives 

 FS-MO-1: Conduct firefighting operations, in close coordination with the affected jurisdictions, 

and in synchronization with local, state, Federal and international firefighting resources. 

(Supports FS-Critical Task-1, FS-Critical Task-2, FS-Critical Task-3) 

 FS-MO-2: Identify, activate, and deploy Federal fire management and fire suppression resources, 

including state and local fire management and fire suppression resources under agreement, 

needed to support firefighting operations. (Supports FS-Critical Task-1, FS-Critical Task-2) 

 FS-MO-3: Coordinate the mobilization and deployment of appropriate local, regional, national, 

and international fire management and fire suppression resources, in close coordination with the 

affected jurisdictions. (Supports FS-Critical Task-3) 

Phase 1a—Normal Operations 

End State: Local, state, and Federal fire management and suppression personnel have been 

inventoried, trained, and properly equipped. (Supports FS-MO-1) 

 Tasks by Phase, by ESF 

 ESF #4 

 Ensure Federal fire management and suppression resources are available for activation. 
Response Federal Interagency Operational Plan 

C.9-7 

 Ensure that an adequate amount of technical specialists required for support are available 

for deployment. 

 Ensure that Incident Management Teams are rostered and are able to mobilize for rapid 

deployment and can be self-sufficient for 72 hours for a response assignment of up to 14 

days. 

 Provide contact with appropriate fire service organizations/associations at the national 

level to ensure any actions by these organizations relative to disaster planning, 

preparedness or response are coordinated with the ESF #4 primary agency and other 

appropriate support agencies. 

 Disseminate information to improve the infrastructure protection efforts within the 

emergency services sector. 

 Provide fire/weather forecasting as needed from the National Interagency Fire Center in 

Boise, ID, or from a nearby National Weather Service Forecast Office under the terms of 

existing interagency agreements. 

 Provide urban and industrial hazard analysis support through the Engineering Laboratory 

of the National Institute of Standards and Technology. 

Phase 1b—Elevated Threat 

End State: Additional planning, training, and exercises have been conducted in coordination with 

local, state, and Federal entities. (Supports FS-MO-1, FS-MO-2) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. These include any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Personnel and resources have been identified and pre-deployed to staging areas. (FS-MO2 and FS-MO-3) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. These include any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Personnel and resources have been identified, inventoried, activated, mobilized and 

deployed to the impacted area. Coordinated fire management and suppression operations have begun. 

(Supports FS-MO-1, FS-MO-2, FS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #3 

 Provide contracting services through ESF #3 to urban and rural firefighting forces to 

obtain heavy equipment and/or demolition services as needed to suppress incident-related 

fires. 
Response Federal Interagency Operational Plan 

C.9-8 

 ESF #4 

 Assume full responsibility for suppression of wildfires burning on Federal lands and joins 

in a unified command with the local jurisdiction on incidents threatening Federal lands. 

 Coordinate Federal firefighting activities by mobilizing firefighting resources in support 

of local, state, tribal, territorial, and insular area wildland, rural, and urban firefighting 

agencies nationwide. 

 Provide command, control, and coordination resources, to include incident management 

teams, area command teams, and multiagency coordination group support personnel, to 

local, state, tribal, territorial, insular area, and Federal agencies in support of firefighting 

and emergency operations. 

Phase 2b—Deployment 

End State: Additional Federal personnel and resources, including state and local fire management 

and suppression resources under agreement, have been deployed to conduct firefighting operations, 

supplementing existing local, state, and Federal resources. (Supports FS-MO-2, FS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #4 

 Provide and coordinate firefighting assistance to other Federal land management; state 

forestry; and local, tribal, territorial, and insular area fire organizations as requested under 

the terms of existing agreements and the National Response Framework (NRF). 

 Provide logistics support through the appropriate Geographic Area Coordination Center 

and/or National Interagency Coordination Center for mobilizing resources for 

firefighting. 

 Arrange for and provide direct liaison with local, state, tribal, territorial, and insular area 

Emergency Operations Centers and fire chiefs in the designated area, as appropriate, to 

coordinate requests for firefighting assistance in structural or industrial fire detection, 

protection, and suppression operations. 

 Establish liaison with EMAC personnel on governor to governor requests for firefighting 

resources to ensure the ESF#4 primary agency and appropriate support agencies are 

aware of any firefighting resources provided through EMAC. 

 Coordinate with foreign governments on identification and movement to the United 

States of assets and resources for firefighting assistance. 

 Provide forecasts of the dispersion of smoke in support of planning and response 

activities. 

 ESF #10 

 Provide technical assistance and advice in the event of fires involving hazardous 

materials. 

 Provide assistance in identifying an uncontaminated, operational water source for 

firefighting. 

 Provide technical assistance on issues concerning the impacts of firefighting chemicals 

on wastewater treatment facilities. 
Response Federal Interagency Operational Plan 

C.9-9 

Phase 2c—Sustained Response 

End State: Final fire management and fire suppression operations have been conducted; support for 

fire protection activities in the affected area continues. (Supports FS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #4 

 Provides assistance with assessment of impacted emergency services sector critical 

infrastructure. 

 Provides support to enhance the resilience of local, state, tribal, territorial, and insular 

area firefighting agencies. 

Phase 3a—Short-term Recovery 

End State: Fire management, fire suppression, and fire protection operations have concluded and 

remaining activities are transitioned to recovery operations. (Supports FS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #10 

 Provides assistance in identifying critical water systems requiring priority restoration for 

firefighting. 

Administration and Support 

Fire management and suppression resources will be mobilized through the existing firefighting 

mobilization system and will comply with procedures for activation, notification, deployment, and 

deactivation as identified in the National Interagency Mobilization Guide. Except where specified in 

agreements or through a formal delegation of authority, assisting firefighting resources report to and 

become part of the command structure of the requesting jurisdiction. 
Response Federal Interagency Operational Plan 

C.9-10

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Response Federal Interagency Operational Plan 

C.10-1 

Appendix 10 to Annex C: Synchronization Matrix

Introduction 

The overall strategy from the National Preparedness Goal informs and guides each level of the Response FIOP. The preliminary targets in 

the National Preparedness Goal, which became critical tasks in the National Response Framework (NRF), inform the mission objectives 

(MO) for each core capability. The MOs are used to establish desired end states for each phase of a core capability’s response, as well as the 

corresponding tasks under each phase. 

The synchronization matrix illustrates this relationship by mapping the MOs to the phases that are supported. In doing this, the 

synchronization matrix visually depicts a high-level view of each core capability’s level of effort at each phase of the response effort. The 

shaded cells identify the phase(s) that each MO corresponds to. Taken overall, the matrix provides a broad view of when and how a core 

capability engages in the response effort. 

Table C.10-1: Core Capability Mission Objectives 

Core Capability Mission Objective

P H A S E

1a 2a 2b 2c 3a

Planning (P) P-MO-1: Utilize an integrated planning process to develop a coordinated operational 

plan across local, state, tribal, territorial, insular area, and Federal jurisdictions. 

(Supports P-Critical Task-1)

P-MO-2: Based on the operational plan, identify critical objectives across the mission 

areas and operational phases. (Supports P-Critical Task-1)

P-MO-3: Identify required resources to achieve the critical objectives in the most 

effective and cost-effective manner. (Supports P-Critical Task-1)

P-MO-4: Identify, sequence, and scope tasks to achieve measurable objective targets. 

(Supports P-Critical Task-1)

Public 

Information and 

Warning (PI)

PI-MO-1: Coordinate the development and delivery of emergency services and public 

messaging with affected jurisdictions, including the private sector and NGOs. (Supports 

PI-Critical Task-1, PI-Critical Task-2)

PI-MO-2: Monitor, analyze, and validate incoming information. (Supports PI-Critical 

Task-2)
Response Federal Interagency Operational Plan 

C.10-2 

Core Capability Mission Objective 

P H A S E 

1a 2a 2b 2c 3a

Operational 

Coordination

(OCD)

OCD-MO-1: Facilitate a planning, training, and exercising process utilizing NIMS to 

enable responders to work in a coordinated manner to meet the needs of disaster 

survivors. (Supports OCD- Critical Task-2)

OCD-MO-2: Gain and maintain shared situational awareness and understanding 

through a consistent operational analysis. (Supports OCD-Critical Task-1, OCD-Critical 

Task-2)

OCD-MO-3: Establish and maintain command, control, and coordination utilizing NIMS. 

(Supports OCD-Critical Task-2)

OCD-MO-4: Mobilize and establish Federal assets within the impacted area to support 

the Federal command and coordination structure. (Supports OCD-Critical Task-1)

OCD-MO-5: Facilitate the execution of Response core capabilities across local, state, 

tribal, territorial, insular area, Federal, private sector, and NGOs. (Supports OCDCritical Task-1, OCD-Critical Task-2)

Fatality 

Management 

Services (FM)

FM-MO-1: Coordinate planning and operational analysis to deliver FM support to the 

affected jurisdictions. (Supports FM-Critical Task-1)

FM-MO-2: Procure and employ Federal resources, in coordination with the affected 

jurisdictions, to support FM services, including: body recovery, identification of remains, 

temporary mortuary solutions, and the provision of counseling services to the bereaved. 

(Supports FM-Critical Task-1)

Critical 

Transportation 

(TR)

TR-MO-1: Coordinate the planning and operational analysis to deliver critical 

transportation requirements. (Supports TR-Critical Task-1, TR-Critical Task-2)

TR-MO-2: Conduct assessments of the condition and safety of transportation pathways 

and plan accordingly. (Supports TR-Critical Task-1, TR-Critical Task-2)

TR-MO-3 Prioritize the restoration of damaged/unusable pathways, identify alternate 

pathways, and coordinate rapid repairs to facilitate responder access and provide basic 

services. (Supports TR-Critical Task- 1)

TR-MO-4: Assess resource requirements to support the reconstitution of the 

transportation infrastructure. (Supports TR-Critical Task-2)

TR-MO-5: Prioritize, adjudicate, and allocate resources to deliver critical transportation 

requirements. (Supports TR-Critical Task-2)
Response Federal Interagency Operational Plan 

C.10-3 

Core Capability Mission Objective 

P H A S E 

1a 2a 2b 2c 3a

TR-MO-6: Support the evacuation of disaster survivors. (Supports TR-Critical Task-1, 

TR-Critical Task-2)

TR-MO-7: Provide delivery of vital response personnel, equipment, and services into 

the impacted area. (Supports TR-Critical Task-1)

TR-MO-8: Respond to, coordinate, and prioritize the delivery of resources to disaster 

survivors and responders in the impacted area. (Supports TR-Critical Task-2)

Environmental 

Response/Health 

and Safety (EH)

EH-MO-1: Determine the appropriate environmental response actions and protective 

measures for response workers and recommend protective measures to the public. 

(Supports EH-Critical Task-1)

EH-MO-2: Provide technical assistance and identify specific environmental risks and 

safety and health hazards throughout the duration of the response, develop health and 

safety plans, activate and deploy required Environmental Response/Health and Safety 

resources for responder safety. (Supports EH-Critical Task-1)

EH-MO-3: Provide incident-specific response worker health and safety and/or other 

related training. (Supports EH-Critical Task-1)

EH-MO-4: Coordinate planning and operational analysis among public, private, and 

nongovernmental sector services to deliver environmental response/health and safety 

requirements. (Supports EH-Critical Task- 2)

EH-MO-5: Analyze, prioritize, and allocate resources to identify and employ Federal 

resources to support operations for the delivery of Environmental Response/Health and 

Safety Environmental Response/Health and Safety capabilities. (Supports EH-Critical 

Task-2)

EH-MO-6: Alert, deploy, and stage Federal resources to support the assessment and 

cleanup of the environment. (Supports EH-Critical Task-2)

EH-MO-7: Coordinate the collection and sharing of predictive modeling data, on-scene 

environmental, hazard, and risk assessments, and sampling and monitoring data. 

(Supports EH-Critical Task-1, EH-Critical Task-2)

EH-MO-8: Provide technical assistance to identify natural and cultural resources and 

historic properties and assess damage and risks to the resources, when requested 

(Supports EH-Critical Task-3)
Response Federal Interagency Operational Plan 

C.10-4 

Core Capability Mission Objective 

P H A S E 

1a 2a 2b 2c 3a

EH-MO-9: Advise on appropriate and assist with implementation of protective measures 

to minimize impacts to natural and cultural resources and historic properties from 

response operations, when requested. (Supports EH-Critical Task-3)

EH-MO-10: Coordinate planning, and information sharing among Federal and 

nongovernmental sector on natural and cultural resources and historic properties. 

(Support EH-Critical Task-3)

Fire

Management

and Suppression

(FS)

FS-Critical Task-1. Provide traditional first response or initial attack firefighting services 

based on the requirements of Federal, state and local authorities.

FS-Critical Task-2. Conduct expanded or extended attack firefighting and support 

operations through coordinated response of fire management and specialized fire 

suppression resources.

FS-Critical Task-3. Ensure the coordinated deployment of appropriate local, regional, 

national, and international fire management and fire suppression resources to reinforce 

firefighting efforts and maintain an appropriate level of protection for subsequent fires.

Infrastructure 

Systems (IS)

IS-MO-1: Perform site surveys and assessments to inform resource requests, conduct 

analysis, and determine the prioritization of infrastructure restoration. (Supports ISCritical Task-1)

IS-MO-2: Coordinate with public and private sector infrastructure owners, operators, 

and partners to prioritize restoration activities, based on the degradation to essential 

infrastructure and the resources required to repair infrastructure. (Supports IS-Critical 

Task-2)

IS-MO-3: Conduct planning in coordination with the public and private sectors to 

support incident objectives for stabilization and repair of essential infrastructure. 

(Supports IS-Critical Task-2)

Mass Care (MC) MC-MO-1: Support the integration and implementation of operational plans among 

public, private, and nongovernmental sectors to deliver mass care services. (Supports 

MC-Critical Task-1)

MC-MO-2: Coordinate, alert, and deploy Federal MC resources to support the staffing 

and equipping of general population shelters and other temporary housing options 

(including accessible housing) for the affected population. (Supports MC-Critical Task2)
Response Federal Interagency Operational Plan 

C.10-5 

Core Capability Mission Objective 

P H A S E 

1a 2a 2b 2c 3a

MC-MO-3: Coordinate with public, private, and nongovernmental partners to gain and 

maintain shared situational awareness and identify resource and personnel 

requirements. (Supports MC-Critical Task-1)

MC-MO-4: Analyze, prioritize, and allocate Federal resources to support MC

operations. (Supports MC-Critical TaskT-1)

MC-MO-5: Coordinate the provision of reunification services to reunite family members 

and caregivers with those missing as a result of the incident. (Supports MC-Critical 

Task-3)

MC-MO-6: Identify non-congregate housing alternatives and facilitate transition from 

congregate facilities, including the provision of relocation assistance or interim housing 

solutions for families unable to return to their pre-disaster homes. (Supports MC-Critical 

Task-2, MC-Critical Task-3)

Mass Search and 

Rescue (MS)

MS-MO-1: Coordinate operational efforts with local, regional, national, and international 

SAR teams. (Supports MS-Critical Task-3)

MS-MO-2: Inventory existing personnel and conduct just-in-time training to provide a 

surge capacity for SAR operations. (Supports MS-Critical Task-1)

MS-MO-3: Identify, activate, and deploy Federal personnel and resources needed to 

support SAR operations. (Supports MS-Critical Task-1, MS-Critical Task-2)

MS-MO-4: Conduct community-based SAR operations, in close coordination with the 

affected jurisdictions, and in synchronization with personnel from local, regional, 

national, and international SAR teams. (Supports MS-Critical Task-1, MS-Critical Task2, MS-Critical Task-3)

On-scene 

Security, 

Protection, and 

Law Enforcement

(OP)

OP-MO-1: Coordinate planning and operational analysis, and locate and inventory 

equipment to deliver On-scene Security, Protection, and Law Enforcement. (Supports 

OP-Critical Task-1)

OP-MO-2: Analyze, prioritize, and allocate Federal law enforcement resources to 

support local, state, tribal, territorial, and insular area jurisdictions. (Supports OP-Critical 

Task-2)
Response Federal Interagency Operational Plan 

C.10-6 

Core Capability Mission Objective 

P H A S E 

1a 2a 2b 2c 3a

OP-MO-3: Provide law enforcement functions, in support of local, state, tribal, territorial, 

and insular area jurisdictions, which may fall outside of traditional patrol and 

investigation duties. (Supports OP- Critical Task-1, OP-Critical Task-2)

Operational 

Communications 

(OC)

OC-MO-1: Coordinate operational communications planning among whole community 

partners. (Supports OC-Critical Task-1)

OC-MO-2: Gain and maintain a shared situational awareness and understanding of the 

operating environment as it pertains to the communications infrastructure. (Supports 

OC-Critical Task-1)

OC-MO-3: Identify, alert, deploy, and adjudicate Federal communications resources to 

support responders at all levels and the affected population. (Supports OC-Critical 

Task-1, OC-Critical Task-2)

OC-MO-4: Integrate Federal response equipment with jurisdictional communications 

systems to facilitate interoperable communications between responders at all levels and 

the affected population. (Supports OC-Critical Task-1)

OC-MO-5: Reestablish sufficient communications within the affected area. (Supports 

OC-Critical Task-2)

Logistics and 

Supply Chain 

Management (PS)

(Operational 

Support)

PS-MO-1: Coordinate planning and operational analysis among governmental, 

nongovernmental, and private sector services and other mission areas. (Supports PSCritical Task-2)

PS-MO-2: Analyze, prioritize, adjudicate, allocate, and mobilize public and private 

resources to support local, state, tribal, territorial, and insular area jurisdictions, and the 

transition to long-term recovery. (Supports PS-Critical Task-1)

PS-MO-3: Coordinate and implement international assistance resources and 

capabilities. (Supports PS-Critical Task-1)

Public Health, 

Healthcare, and 

Emergency 

Medical Services

(HM)

HM-MO-1: Coordinate planning and operational analysis among governmental, 

nongovernmental, and private sector services and other mission areas to prepare for 

the delivery of medical care and countermeasures. (Supports HM-Critical Task-1)

HM-MO-2: Analyze, prioritize, adjudicate, allocate, and deliver public health, behavioral 

health, and medical resources to support local, state, tribal, territorial, and insular area 

jurisdictions. (Supports HM-Critical Task-1)
Response Federal Interagency Operational Plan 

C.10-7 

Core Capability Mission Objective 

P H A S E 

1a 2a 2b 2c 3a

HM-MO-3: Coordinate with the affected jurisdiction(s) to provide medical care and 

countermeasures. (Supports HM-Critical Task-1, HM-Critical Task-2)

HM-MO-4: Reduce medical surge support and return resources to pre-incident levels. 

(Supports HM-Critical Task-3)

Situational 

Assessment (SA)

SA-MO-1: Coordinate existing planning and operational analysis processes across 

public, private, and nongovernmental sectors to facilitate the timely analysis of 

situational information. (Supports SA-Critical Task-1)

SA-MO-2: Collect, distill, and analyze incoming information from all available sources 

within and outside of the affected area. (Supports SA-Critical Task-1, SA-Critical Task2)

SA-MO-3: Develop, validate, and make available decision-relevant information to 

facilitate situational understanding across public, private, and nongovernmental sectors. 

(Supports SA-Critical Task-1, SA-Critical Task-2)

SA-MO-4: Enhance preliminary situational assessments with more comprehensive 

information collection, validation, and analysis processes to inform decision making. 

(Supports SA-Critical Task-2)
Response Federal Interagency Operational Plan 

C.10-8 

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Response Federal Interagency Operational Plan 

D-1 

Annex D: Logistics and Supply Chain Management 

(Operational Support) 

Purpose 

The purpose of this annex is to describe support to response operations through the delivery of the 

Logistics and Supply Chain Management core capability. 

The Logistics and Supply Chain Management core capability provides essential services and 

resources to the affected population and surrounding communities, to include emergency power to 

critical facilities, fuel support for emergency responders, and access to community staples (e.g., 

grocery stores, pharmacies, banks) and fire and other first response services. 

The Logistics and Supply Chain Management (PS) critical tasks are as follows: 

 PS-Critical Task-1. Mobilize and deliver governmental, nongovernmental, and private sector 

resources within and outside of the affected area to save lives, sustain lives, meet basic human 

needs, stabilize the incident, and transition to recovery, to include moving and delivering 

resources and services to meet the needs of disaster survivors. 

 PS-Critical Task-2. Enhance public and private resource and services support for an affected 

area. 

Logistics and Supply Chain Management provides the logistical, or operational support, to achieve 

the response priorities established by leadership in the Operational Coordination core capability by 

identifying, prioritizing, and coordinating how lifesaving resources are coordinated to prepare for or 

meet response resource requirements across the whole community. The Critical Transportation core 

capability is integrated into this annex as an appendix to facilitate the alignment of transportation 

objectives and capabilities with the prioritization of the delivery of resources into the affected areas 

to stabilize the incident and transition to recovery operations. 

Situation 

When a disaster occurs, Logistics and Supply Chain Management are needed to effectively deliver 

the core capabilities. Disaster responders will require field support, and their response operations 

across all core capabilities are dependent upon the availability, accessibility, and distribution of 

public and private resources. Response operations are stabilized when resources to support operations 

are available within 72 hours of onset of the incident. 

Assumption 

General assumptions for the Response Federal Interagency Operational Plan (FIOP) have been 

identified in the base plan. 

Mission 

Federal interagency partners will mobilize and deliver governmental, nongovernmental, and private 

sector resources within and outside of the affected area to save and sustain lives, and facilitate a 

seamless transition to recovery. 
Response Federal Interagency Operational Plan 

D-2 

Execution 

Concept of Support 

During a Stafford Act response, or when requested through Federal-to-Federal support, the Federal 

Emergency Management Agency (FEMA) is responsible for the coordination of required operational 

support. Emergency Support Function (ESF) #7 implements an effective interagency end-to-end 

supply chain system, known as the National Logistics System (NLS), for an all-hazards response. 

The NLS maintains management services and resources support capability with the flexibility, 

adaptability, and agility to implement and sustain a dynamic operational tempo consisting of other 

Federal departments and agencies, nongovernmental organizations (NGO), National Voluntary 

Organizations Active in Disaster (National VOAD), and private sector partners. 

Supply chain management focuses on integrating the end-to-end supply chain processes, beginning 

with planning of customer-driven requirements for resources and services and ending with delivery 

to customers. Figure D-1 depicts the overlay between the general response phases of incident support 

and a basic six-step supply chain approach. 

Figure D-1: Supply Chain Approach 

Phase 1 

Federal watch/operations centers maintain steady state operations. FEMA, the General Services 

Administration (GSA), the Department of Health and Human Services (HHS), the Department of 

Defense (DoD), and other Federal departments and agencies participate in planning working groups 

to identify and validate resource capabilities and requirements, test planning effectiveness, perform 

enhancements, as required, and leverage resources to remediate shortfalls. Commercial contracts and 

NGO agreements are established to augment the capabilities of the Federal Government. The supply 

chain approach also illustrates steps for balancing logistics resources with requirements and 

establishing and communicating logistics policies, plans, and procedures. 

FEMA distribution centers (DC), as displayed in Figure D-2, are used to store resources including 

pre-configured initial response resources. 

Incident Support Bases (ISB) are identified, in coordination with the FEMA Headquarters, regions, 

and the Incident Management Assistance Team (IMAT), during planning activities to expedite the 

response and for the purposes of pre-positioning resources. ISBs are a designated Federal site where 

uncommitted resources are temporarily received, pre-staged, and maintained until a requirement has 

been identified through the Unified Coordination Group (UCG). For notice incidents, ISBs may be 
Response Federal Interagency Operational Plan 

D-3 

stood up during this phase. Pre-staged resources at an ISB expedite the immediate delivery of 

resources once they are requested, and the ISBs typically store the following resources: water, 

emergency meals, cots, blankets, tarps, plastic sheeting, generators, and other resources, as required. 

Figure D-2: FEMA Distribution Centers 

Phase 2 

FEMA Headquarters and regions deploy logistics teams to disaster locations to establish FEMA’s 

initial on-site resource response capability at either ISBs or staging areas. The teams provide both 

personnel and resources necessary to establish field activities. The Regional Response Coordination 

Center (RRCC)/Initial Operating Facilities (IOF) may establish a staging area for pre-staged 

requested resources or assume initial operations of the ISB. For no-notice incidents, an ISB is 

coordinated with the Region/IMAT/Joint Field Office (JFO) or is stood up at the direction of the 

FEMA Administrator. In either a catastrophic or multi-state incident, or when deemed appropriate by 

the FEMA Administrator, the ISB may remain an enduring site to support either the staging areas, 

points of distribution (POD), or community distribution points (CDP) throughout response 

operations. 

The deployment and delivery of resources is executed using a push-pull strategy. FEMA will either 

push pre-staged uncommitted resources from provider locations to ISBs or push pre-staged, preplanned committed resources to pre-designated staging areas based on an analysis of the situation 

and projected resource needs. Once staging areas or ISBs are established and the JFOs are functional, 

distribution management may revert to a pull strategy for resource sustainment that coordinates the 

regional request for commodities prior to sending resources. The Resources Support Section (RSS) in 

the National Response Coordination Center (NRCC) and the Region will jointly determine when to 

change from the push to the pull approach. 

ISBs are located as close to an impacted area as the incident will allow. ISBs may receive resources 

from various FEMA DCs, commercial vendors, other Federal departments and agencies, NGOs, and 

even other ISBs. ISBs establish a two-day supply for resource requirements. Resource requirements 

are established at the RRCC or the UCG in coordination with local, state, tribal, territorial, and/or 

insular area counterparts based on projections or reports of the impacted percentage of the population 

and the capacity to distribute to the public. 
Response Federal Interagency Operational Plan 

D-4 

If a region or JFO has a requirement for ISB commodities, one of two things can occur: 

 If an ISB serves a single region or JFO and a validated state requirement has been received, 

commodities are identified and dedicated to fill that requirement. The region, UCG, Logistics 

Section Chief, or Ordering Unit Leader can request disaster commodities and support directly 

from the servicing ISB. This is considered single point ordering. 

 If an ISB services multiple regions or JFOs, and state requirements have been received, standard 

commodity requisition procedure applies. If there are competing requests for scarce commodities, 

adjudication will be made by FEMA Headquarters. 

Initial Response Packages are comprised of the following commodities, which includes commonly 

used shelter items: 

 Meals 

 Water

 Cots 

 Blankets 

 Infant and toddler kit 

 Durable medical equipment kit 

 Consumable medical supplies kit 

 Generators 

 Mobile Communications Office Vehicle from FEMA’s Disaster Emergency Communications 

(DEC) Division. 

The team and resource cache is found in Tab 1 to Appendix 1 of this annex. 

The Federal Government encourages cooperative relations between private sector organizations and 

local, state, tribal, territorial, and insular area authorities regarding response activities. The Federal 

Government encourages extensive two-way and multidirectional sharing between the public and 

private sectors for operational information and shared situational awareness relative to potential or 

actual incidents. The Federal Government may direct private sector response resources where 

pertinent contractual relationships exist and also retains its full authorities to oversee and control, as 

appropriate, infrastructure involved in an incident. 

Federal departments and agencies prepare, coordinate, adjudicate, and deploy national-level 

resources in support of local, state, tribal, territorial, and insular areas government efforts to save and 

sustain lives, protect property, and mitigate environmental impacts in response to a catastrophic 

incident. 

The following considerations will be used when providing resources for survivor requirements when 

appropriate: 

 Determine which specific national-level and Logistics and Supply Chain Management 

capabilities are currently available. 

 Determine which national-level resources will be maintained in reserve for deployment to future 

incidents. 

 Identify the considerations for deployment of specific national-level and Logistics and Supply 

Chain Management capabilities based on FEMA Region(s) and by state(s) survivor requirements. 
Response Federal Interagency Operational Plan 

D-5 

 Calculate requirements based upon the impacted survivor population.

 Evaluate the local, regional, state, tribal, territorial, and insular area capabilities (inclusive of the 

public/private sector) that are affected or degraded. 

 Allocate available national-level and Logistics and Supply Chain Management capabilities to 

each impacted region based on percentage of total impacts. 

 Allocate available national-level and Logistics and Supply Chain Management capabilities to 

each impacted region based upon adjudication of limited resources. 

Table D-1 highlights the major factors that ESFs should consider for coordinating the allocation of 

Federal national-level resources. 

Table D-1: Major Considerations for Allocation of Federal National-level Resources 

ESF Major Considerations

All ESFs  Number of states affected.

 Population impacted.

ESF #1—

Transportation

 Major highways/bridges/airports/ports damaged/closed to traffic.

 Estimated time to repair/restore transportation critical infrastructure.

 Ability of the private sector to respond to damaged transportation 

infrastructure.

ESF #2—

Communications

 Location of IOFs and JFOs.

 Location of IMAT.

 Location of deployed teams.

 Status of local, state, tribal, territorial, and insular area government 

communications critical infrastructure.

 Extent of damages to private sector communications critical infrastructure.

ESF #3—Public 

Works and 

Engineering

 Major transportation routes with non-functioning equipment.

 Major transportation routes blocked by debris.

 Status of water/wastewater infrastructure.

 Status of power grid/critical facilities and estimated time until restored.

 Status of navigation infrastructure.

 Number of buildings damaged, flooded, or destroyed.

 Number of dams/levees damaged or destroyed.

 Estimated number of collapsed buildings by type.

ESF #4—

Firefighting

 Number of local fire stations without power, damaged, flooded, or destroyed.

 Number of structural and wildland fires.

 Number of buildings damaged, flooded, or destroyed.

 Locations of area-wide quantities of combustible debris, including building 

debris and fallen trees.

ESF #5—

Information and 

Planning

 Location of Federal Coordinating Officer (FCO), IOFs, and JFOs.

 Environmental response, health and safety, and occupational safety concerns.
Response Federal Interagency Operational Plan 

D-6 

ESF Major Considerations 

ESF #6—Mass 

Care, Emergency 

Assistance, 

Temporary 

Housing, and 

Human Services

 Shelter-seeking population and their household pets/service and assistance 

animals.

 Population requiring lifesaving/sustaining support to include food and 

emergency supplies. 

 Number of buildings damaged, flooded, destroyed, or without power.

 Number of water/wastewater facilities damaged, destroyed, or without power.

 Number of customers without power.

ESF #7—

Logistics

 Shelter-seeking population and their household pets/service and assistance 

animals.

 Number of responders requiring shelter support.

 Population requiring some level of support.

 Number of customers without power.

 Number of water/wastewater facilities damaged, destroyed, or without power.

 Critical infrastructure requirements.

ESF #8—Public 

Health and 

Medical Services

 Number of critically injured that need medical care.

 Number of injured that need medical care.

 Number of fatalities.

 Number of healthcare facilities impacted or damaged and number of 

healthcare facilities that need generator or other power assistance. .

 Number of patients who require medical evacuation.

 Number of survivors who require medical oxygen or medical oxygen 

generation capabilities.

 Number of potentially exposed individuals who may require prophylaxis.

ESF #9—Search

and Rescue

 Number of and type of buildings damaged, destroyed, or without power.

ESF #10—Oil and 

Hazardous 

Materials 

Response

 Number of hazardous materials leaks, spills, or releases or threatened 

releases from facilities, vessels, pipelines, and other sources.

 Extent of hazardous materials facilities damaged, destroyed, or without power.

 Nature and extent of actual or potential environmental contamination and its 

impacts.

ESF #11—

Agriculture and 

Natural 

Resources

 Impact to agriculture and natural resources.

 Availability of nutritional resources.

 Status to provide food to survivors.
Response Federal Interagency Operational Plan 

D-7 

ESF Major Considerations 

ESF #12—Energy  Number of petroleum/natural gas pipelines damaged/destroyed.

 Status of energy needs to meet public and private sector requirements.

 Number of customers without power.

 Status of release of fuel from fuel reserves to meet survivor requirements (e.g.,

for cars, home heating).

 Outages in impacted area/utility service territory and estimated time until

restored.

 Status of petroleum/natural gas system.

 Status of ports/platforms.

 Crude oil, refined products, and natural gas production/shutdown status.

 Energy import/export impacts.

 Energy shortages outside impacted region.

ESF #13—Public 

Safety and 

Security

 Number of facilities/areas/roadways requiring security.

 Transport and ISBs/staging areas security.

 Major highways/bridges/airports/ports damaged/closed to traffic.

 Estimated time to repair/restore transportation critical infrastructure.

 Status of local, state, tribal, territorial, and insular area law enforcement critical

infrastructure.

 Number of injured/fatalities.

ESF #15—

External Affairs

 Location of FCOs, IOFs, and JFOs.

 Number of buildings damaged/destroyed or without power, people injured, and

numbers of fatalities.

 Shelter, POD, CDP locations.

 Status of public communications systems (e.g., television, radio, Internet).

The Federal Government supports measures that ensure site accessibility for essential service 

providers responding to disasters or emergencies, including telecommunications services, electrical 

power, natural gas, water and sewer services, or any other essential service, as determined by the 

President. 

Phase 3a 

When response operations are complete, commodities are returned or disposed of in accordance with 

disposition instructions from FEMA Logistics. 

FEMA Logistics Management Directorate (LMD) acts as the clearinghouse for resource returns, 

regardless of whether the resource is residual or defective, or equipment which requires 

refurbishment. The FEMA regions request disposition instructions for residual or defective items 

before returning them through FEMA’s inventory management system or initiating disposal or 

donation. FEMA/LMD may authorize a disposal initiated by the region or that the direct 

uncommitted residual ISB/staging area items be returned to a distribution center. 

During recovery operations, the Federal Government’s role in supply chain management for response 

operations will transition to a responsibility picked up by local, state, tribal, territorial, and insular 

area jurisdictions. Operational support progresses in the capacity of providing temporary housing as 

the hand-off to recovery. Coordination for continuing support operations will transition from the ESF 

to the Recovery Support Functions (RSF). 
Response Federal Interagency Operational Plan 

D-8 

Coordinating Structures 

Many ESFs support the Logistics and Supply Chain Management core capability. The ESFs that 

perform tasks under this core capability are summarized in Figure D-3. Specific tasks conducted by 

these ESFs are identified in the Tasks by Phase, by ESF section below. 

Figure D-3: Coordination of ESF Support to Logistics and Supply Chain Management

National Level 

The FEMA Assistant Administrator for Logistics, or a designated representative, serves as the 

“Single Integrator” or National Logistics Coordinator (NLC). The NLC leverages all partners of the 

Logistics whole community, including NGOs, faith-based organizations, and the National VOAD, 

into a single synchronized effort during response and short-term recovery. The NLC and ESF #7 

accomplish this through the NLS by anticipating, prioritizing, and executing timely and effective 

readiness, preparedness, response, and short-term recovery actions following an incident. The NLC 

activates the NLS to fulfill time-phased requirements by the required delivery dates. 

The Resource Management Group (RMG) is an operational, interagency body that is assembled upon 

activation as part of the National Response Coordination Staff when existing resource support 

mechanisms need augmentation. All or specially designated NLS partners may be invited to 

meetings, and they may be called upon to provide resource status, readiness, and availability updates 

for implementation actions (e.g., transport). 

The RMG utilizes disaster requirements to recommend an appropriate sourcing plan for the requested 

commodities. The RMG considers all available factors affecting the sourcing recommendation, such 
Response Federal Interagency Operational Plan 

D-9 

as location, quantity, and cost, in identifying the best resources from which to source the 

requirement. The RMG provides initial and sustainment resources to meet the requirements of the 

impacted region(s) using the ESF #7 Supply Chain Resource Concept sourcing capability. 

The Defense Logistics Agency (DLA) is an active partner of FEMA that may provide emergency 

meals and fuel to first responders per an existing interagency agreement (IAA). FEMA may request 

support of the DoD to assist in the augmentation of logistics support sites or operational capabilities. 

FEMA coordinates Federal response and recovery operations in close coordination with local, state, 

tribal, territorial, and insular area governments, NGOs, SSAs, and the private sector. National VOAD 

will provide guidance in the management of unaffiliated volunteers and unsolicited donated goods, 

along with other donations management issues, as outlined within the support annexes of the 

National Response Framework (NRF). During disaster activation, the Department of Homeland 

Security (DHS) Private Sector Office coordinates with the National Operations Center (NOC) to 

provide private sector information for situational awareness briefings presented to the Secretary of 

Homeland Security. The National Business Emergency Operations Center (EOC) integrates into 

NRCC operations to coordinate with the private sector to identify resource needs and potential 

private sector donations to fulfill these needs. 

The National Infrastructure Coordinating Center (NICC) currently works with 16 critical 

infrastructure sectors and serves as the coordinating mechanism for critical infrastructure and the 

private sector. Sources of information concerning private sector logistics and chains of supply 

include the National Business EOC, the Small Business Administration, and Chambers of 

Commerce. 

Immediately following an incident, actions are initiated to facilitate coordination with relevant 

private sector entities. Private sector businesses and organizations report threats and incidents to the 

NOC using existing jurisdictional incident reporting channels. The NOC will evaluate this 

information and will then make an initial determination to initiate the coordination of Federal 

response activities. 

The DHS Private Sector Office representatives act as a liaison to communicate at a strategic level 

with private sector and DHS leadership to facilitate communication and maintain awareness of public 

sector issues and needs as a complement to awareness being achieved by the NRCC and the NICC. 

The NRCC receives information through the existing partnership with ESFs and uses this 

information, as applicable, to inform the private industry on response and recovery efforts as it 

relates to impacted areas. Together, these entities also coordinate directly with the private sector, 

internal DHS partners, and other Federal departments or agencies to assess the economic impact of 

an incident. 

The DHS Office of Public Affairs works in conjunction with the NOC to provide timely public 

information to the private sector during national-level incidents that require a coordinated Federal 

response. The ESFs implement established protocols for coordination with private sector 

counterparts at the national and regional levels. To facilitate private sector coordination, DHS assigns 

representatives to various regional and national-level response coordination centers. 

DHS coordinates with local, state, tribal, territorial, and insular area officials to utilize non-traditional 

resources (e.g., U.S. Postal Service, community groups) to distribute messaging and resources to 

Non-congregate and rural survivors, as required. Requested services or resources may be provided by 

the Federal Government or coordinated by the RSS-RMG using atypical solutions to meet requested 

requirements. 
Response Federal Interagency Operational Plan 

D-10

FEMA/Logistics Transportation, in coordination with ESF #1, requests permits (e.g., weight, 

movement times) for the transportation of resources into the impacted areas. ESF #1 and the 

Department of Transportation (DOT) are not responsible for the movement of goods, equipment, 

animals, or people, but they do help identify alternative transportation solutions that can be 

implemented when traditional infrastructure is unavailable. ESF #7 and other interagency partners 

identify the need for security support to protect and secure resources during movement, storage, and 

distribution and coordinates with ESF #13 for needed support. 

The FEMA Transportation and Management Coordination Group (TMCG) will coordinate the 

transportation requirements processes and execute movement of resources from storage facilities, 

partners, and vendors to ISBs, staging areas, and as required to PODs/CDP, shelters, and survivors. 

Services provided include multi-modal transportation, fuel ordering, and various fleet maintenance 

and tracking management tools. Transportation management also includes providing services in 

response to requests from other Federal organizations. 

To meet required delivery dates, the TMCG will rely on the GSA Tenders Program as the primary 

source of acquiring transportation during all disaster phases. Maintaining flexibility and 

responsiveness may require the TMCG to reach out to other Federal partners for additional support 

through the mission assignment process or acquire transportation support via FEMA acquisition 

channels. The TMCG’s strategy is to source the mode of transportation, pickup at an intermediate 

site, then deliver by the required delivery date. 

FEMA Private Sector Division, facilitates the improvement of information sharing and coordination 

between FEMA and the private sector during disaster response efforts. FEMA Private Sector 

Division cultivates public-private collaboration and networking in support of the various roles the 

private sector plays in emergency management, including impacted organization, response resource, 

partner in preparedness, and component of the economy. The FEMA Private Sector Division also 

fosters internal collaboration and communication among FEMA programs that have an interest in 

private sector engagement during response activities. 

The NLC will determine whether the requested services or resources will be provided by the Federal 

Government or coordinated by the RSS-RMG. Items that are readily available from outside 

organizations, in the timeframe and quantity required, will be considered prime candidates for 

outsourcing. Figure D-4 demonstrates the supply chain concept for sourcing of requirements. The 

source of supply could be other Federal agencies, NGOs, or the private sector. FEMA/LMD 

reallocates resources among DCs based on stockage and requirements. 
Response Federal Interagency Operational Plan 

D-11

Figure D-4: ESF #7 Logistics Sourcing Concept 

FEMA, GSA, DLA, the U.S. Department of Agriculture (USDA), and the U.S. Army Corps of 

Engineers (USACE) will be responsible for sourcing essential resources. FEMA will employ both 

strategic sourcing for supplies and services procured nationally to economies of scale. Local 

Business Transition Teams will provide economic stability to the affected region or local area and 

achieve shorter delivery times. For commodities that FEMA determines will not be sourced 

nationally, FEMA field activities will be authorized to procure locally while implementing Local 

Business Transition Teams. 

Regional Level 

FEMA regions are integrated decision makers for all logistics functions prior to, during, and 

following an incident. Regional personnel staff JFOs and ISBs/staging areas and identify, develop, 

and coordinate distribution of regional resource requirements and capabilities with local, state, tribal, 

territorial, and insular area responders. 

The RRCC or the UCG establishes resource requirements in coordination with local, state, tribal, 

territorial, and insular area counterparts based on steady state planning and projected reports of the 

impacted percentage of population and the capacity to distribute commodities. 

Resource and service requests will be processed through the RSS in the NRCC using the following 

information as guidelines:

 Number of survivors 

 Resource, service, type of support required 

 Number of days of support required 
Response Federal Interagency Operational Plan 

D-12

 Required delivery date or date support is required (start date) 

 Location (staging area) 

 Special requirements/concerns/instructions 

 Coordination required with point of contact information. 

Local, State, Tribal, Territorial, and Insular Areas 

Local, state, tribal, territorial, and insular area areas affected are responsible for initial disaster 

response. The individual entities are responsible for operating PODs or CDPs for the distribution of 

disaster supplies to survivors. They also provide some integrated staffing to JFOs. When resources 

are exhausted at the local, state, tribal, territorial, or insular area levels, Federal Government requests 

for services and resources may be made. 

The lead FEMA element for coordinating local, state, tribal, territorial, and insular area requirements 

will be within the operations section of the UCG. 

Incident Level 

National teams will staff the ISB. If an ISB becomes a staging area, the RRCC, IMAT, or UCG may 

request the National ISB remain in place or regional teams can take over. Each team is staffed, 

trained, and ready to deploy. The DLA can augment FEMA if FEMA’s capability is overwhelmed. 

FEMA may request support of the DoD to assist in ISB logistics support operations. 

International Level 

The Department of State, U.S. Agency for International Development (USAID)/Office of Foreign 

Disaster Assistance (OFDA), and FEMA utilize the International Assistance System to identify and 

manage incoming international donations and volunteers as outlined in the support annexes of the 

NRF. 

ESFs that provide support to the delivery of Logistics and Supply Chain Management core capability 

are included in the following section. 

Logistics and Supply Chain Management (Operational Support) Tasks 

Mission Objectives (MO) 

 PS-MO-1: Coordinate planning and operational analysis among governmental, nongovernmental, 

and private sector services and other mission areas. (Supports PS-Critical Task-2) 

 PS-MO-2: Analyze, prioritize, adjudicate, allocate, and mobilize public and private resources to 

support local, state, tribal, territorial, and insular area jurisdictions and the transition to long-term 

recovery. (Supports PS-Critical Task-1) 

 PS-MO-3: Coordinate and implement international assistance resources and capabilities. 

(Supports PS-Critical Task-1) 

Phase 1a—Normal Operations 

End State: Plans, checklists, IAAs, and contracts have been reviewed and revised as necessary; 

private sector partners have been integrated into teleconferences and planning meetings. (Supports 

PS-MO-1) 
Response Federal Interagency Operational Plan 

D-13

 Tasks by Phase, by ESF 

 All 

 Coordinate between Federal departments and agencies to strengthen relationships and 

identify and mitigate service and resource shortfalls. 

 Develop and review pre-scripted mission assignments (PSMA), memoranda of 

understanding (MOU), and IAAs. 

 ESF #2 

 Identify potential local, state, tribal, territorial, insular area, and Federal emergency 

communications requirements. 

 ESF #3 

 Establish advance contracts for the provision of private/public services support. 

 ESF #5 

 Plan and identify the linkages required between the NRCC and the RRCC with the 

private sector-operated EOC or state EOCs. 

 Conduct detailed resource analysis with local, state, tribal, territorial, and insular area 

partners to ascertain expected Federal support resources. 

 Set plans and checklists according to the FEMA Administrator’s priorities and review 

internally and with partners. 

 ESF #7 

 Review all associated plans and coordinate with regions and partners. 

 Coordinate with the regions to maintain or conduct detailed requirements analysis with 

local, state, tribal, territorial, and insular area partners to ascertain expected Federal 

support services and resources to mitigate limiting factors or shortfalls. 

 Review the readiness and deployment posture of personnel, services, resources, contracts, 

and logistics support systems. 

 Review PSMAs, license and use agreements, IAAs, and contracts. 

 Coordinate and plan to mobilize and deliver governmental, nongovernmental, and private 

sector resources within and outside of the affected area. 

 Review and prepare additional pre-disaster agreements and contracts to ensure the 

greatest capability/flexibility to provide sufficient resources to survivors and responders 

during an incident. 

 Identify inventory of equipment and resources needed to support response. 

 Maintain backup generators. 

 Order, maintain, and verify inventory levels of personal protective equipment (PPE) and 

other fatality management mission essential materials and supplies for response, 

recovery, and mitigation efforts. 

 Prepare advanced readiness contracting. 
Response Federal Interagency Operational Plan 

D-14

 Conduct Logistics and Supply Chain Management core capability working group 

meetings to coordinate requirements, implement after action report (AAR) lessons 

learned and best practices, and coordinate disability-related assistance/functional needs 

support services, durable medical equipment, and consumable medical supplies. 

 Coordinate with regions to validate the locations of regional staging areas, state staging 

areas, and PODs, including trigger points. 

 ESF #15 

 Prepare to activate the Private Sector Incident Communications Conference Line 

(PICCL). 

Phase 1b—Elevated Threat 

End State: Select resources have been pre-positioned, and updates on commodities, facility status, 

personnel, and other FEMA and partner assets have been provided to deliver shared situational 

awareness. (Supports PS-MO-1) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Assets have been positioned, as appropriate, through coordination with local, state, tribal, 

territorial, and insular area jurisdictions; the private sector; and other stakeholders. Situational 

awareness has been attained to effectively coordinate the delivery of equipment, supplies, and 

services. (Supports PS-MO-1) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Information has been analyzed regarding the operational environment to gauge 

preliminary planning and response needs. (Supports PS-MO-1) 

 Tasks by Phase, by ESF 

 ESF #1 

 Coordinate with owners/operators of variable messaging signs (local and state 

Departments of Transportation). 

 ESF #3 

 Execute emergency contracting support for lifesaving and life-sustaining services, to 

include providing emergency power, and other emergency commodities and services. 

 ESF #5 

 Coordinate with ESF #15; local, state, tribal, territorial, and insular area jurisdictions; and 

volunteers to disseminate messaging requesting the donation of emergency supplies. 
Response Federal Interagency Operational Plan 

D-15

 Integrate resources from GSA; USACE; DLA; other local, state, tribal, territorial, insular 

area, and Federal jurisdictions; and private sector providers to allow for coordinated 

operations and to meet operational requirements. 

 Coordinate with ESF #13 to provide security requirements. 

 Activate ESF #7 at the national and regional level to provide coordination and technical 

assistance. 

 Coordinate with ESF #15 to provide the locations of resources to the public. 

 Initiate FEMA’s National Ambulance Contract for ground transportation. 

 Coordinate with NRCC to initiate necessary notifications/activations: 

‒ Ensure surge account is funded 

‒ Activate PSMA, memoranda of agreement (MOA), and other support documentation 

for select ESFs 

‒ Initiate coordination and support efforts with relevant NGO and private sector 

partners. 

 ESF #6 

 Provide hydration, food, cots, blankets, and other resources and services to the impacted 

population(s), leveraging ESF #7 and other capabilities. 

 Stage, sort, and distribute donated items to the affected population. 

 Analyze projected population impacts to determine hydration, feeding, and sheltering 

requirements in the forecasted impact areas. 

 ESF #7 

 Develop shared situational awareness through coordination with local, state, tribal, 

territorial, and insular area jurisdictions, the private sector, and other stakeholders to 

identify additional resource shortfalls. 

 Initiate national IAAs with other Federal agencies/NGOs, MOAs/MOUs, and logistics 

contracts. 

 Leverage pre-existing IAAs with GSA and DLA and pre-existing contracts with the 

private sector resource providers. 

 Coordinate with all response partners to establish supply chain management and the 

effective movement of resources. 

 Procure additional resources to meet requirements and mitigate shortfalls. 

 Manage tracking of resource movement to and from ISBs to staging areas and other 

locations. 

 Deliver information technology services to support resource movement, tracking, and 

coordination (logistics supply chain management system and geospatial). 

 Coordinate the delivery of equipment, supplies, and other services to ISBs, staging areas, 

PODs, and CDPs. 
Response Federal Interagency Operational Plan 

D-16

 Determine requirements for supply of fuel, power generation, and sanitation services to 

support ISBs, staging areas, and deployed resources. 

 Maintain coordinated and synchronized supply chain management monitoring with all 

response partners including security aspects to determine current resource inventories. 

 Coordinate the distribution of infant and toddler kits, durable medical equipment kits, and 

consumable medical supplies kits. 

 Manage and coordinate RSCs for deployed responders. 

 Activate the RMG, as required. 

 Implement the Defense Production Act with interagency partners, as required. 

 Coordinate with other Federal agencies for the activation of individual authorities, 

statutes, or the implementation of waivers. 

 Adapt existing plans for logistical support to responders and survivors; promulgate 

Incident Action Plans for each operational period. 

 Inventory and report to the NRCC on the availability and functional status of all services 

and resources. 

 Identify Federal emergency assets and capabilities available for deployment.

 Conduct national-level operational planning with respective region(s) to develop unified 

Federal response plans. 

 Begin to establish coordination and resource planning with other Federal agencies at both 

the national and regional levels. 

 Coordinate with the FEMA/Private Sector Office regarding public information and 

outreach with national private sector stakeholders, associations, academia, and NGOs. 

 Provide goods and services to support evacuation efforts and transportation services and 

coordinate logistical support for medical teams to support field operations. 

 Coordinate all air, ground, and maritime movement of Federal resources. 

 Activate support from other interagency partners such as DoD airlift/sealift, DLA 

commodities and fuel, and USACE resources, as required. 

 Initiate/Conduct daily logistics coordination conference calls with the affected region(s) 

and interagency partners: 

‒ Confirm execution schedule timeline with affected region(s), including trigger points 

‒ Identify and mitigate limiting factors and shortfalls 

‒ Discuss expected resource movements with the DoD Liaison Officer, GSA, and the 

TMCG/Movement Coordination Center (MCC). 

 Identify Disaster Workforce employee requirements based on staffing and FEMA 

Qualification System (FQS) needs. 

 Coordinate with FEMA Region/Defense Coordinating Officer (DCO), NRCC, 

USNORTHCOM and OSD representatives to validate ISB or staging area as appropriate. 

 Conduct future planning with NRCC Planning Support Section. 
Response Federal Interagency Operational Plan 

D-17

 Coordinate with ESF #13 concerning transportation and site security requirements. 

 Coordinate with FEMA/Office of Response and Recovery concerning Federal evacuation 

support actions, as required. 

 Modify and execute all PSMAs into mission assignments with NRCC Mission 

Assignment Coordinator. 

 Alert the DLA of potential support requirements. 

 Alert GSA to be prepared to procure needed items as well as support transportation 

requests. 

 Coordinate to deploy logistical staging vehicles with Logistics Operations. 

 Identify reservists for possible deployment to a staging area. 

 Discuss expected cargo movements with DoD DCO/DCE and Liaison Officer, GSA, and 

the MCC. 

 Confirm that JFO kits and Disaster Information Systems Clearinghouse packs are ready 

for deployment by Mobile Emergency Response Support (MERS). 

 Activate and prepare Accountable Property Officer and logistics supply chain 

management system kits for deployment. 

 Coordinate blanket purchase agreements and contract(s) for immediate implementation 

with Office of Chief Procurement Officer for support requirements. 

 Convene the Distribution Management Strategy Working Group/RMG to apprise all 

partners current resource levels, convey actions required, list known shortfalls, and 

identify action items and points of contact. 

 ESF #8 

 Notify DCs to prepare for shipment of fatality management resources to the impacted 

area. 

 ESF #9 

 Notify, activate, and/or deploy urban search and rescue (US&R) teams and deploy US&R 

caches through secure transportation. 

 ESF #11 

 Provide technical assistance and coordination with state agencies on potential needs for 

USDA Foods and possible D-SNAP. 

 Support ESF #6 to coordinate an integrated Federal response to meet the mass care and 

emergency assistance needs of animals, including household pets, service and assistance 

animals, and their owners. 

 Coordinate with local, state, tribal, territorial, insular area, and Federal response to an 

outbreak of a highly contagious or economically devastating animal or plant pest, or 

disease. 

 ESF #13 

 Activate Federal law enforcement resources for deployment to and employment in the 

affected area(s). 
Response Federal Interagency Operational Plan 

D-18

 ESF #15 

 Activate the PICCL and hold coordination calls, if not already activated. 

 Coordinate messages regarding local, state, tribal, territorial, insular area, and Federal 

governments and establish the National Joint Information Center. 

 Staff and activate the Private Sector desk in NRCC. 

Phase 2b—Deployment 

End State: Governmental, nongovernmental, and private sector resources have been mobilized to 

support immediate lifesaving and life-sustaining needs, and stabilize the incident. (Supports PS-MO2) 

 Tasks by Phase, by ESF 

 ESF #1 

 Coordinate and support response and recovery activities among transportation 

stakeholders. 

 ESF #2 

 Coordinate Federal actions to assist the public and private industry in restoring the 

critical communication infrastructure facilitating the dissemination of instructions relative 

to the delivery of information to the public. 

 ESF #3 

 Coordinate with RRCC/JFO for potential, local, state, tribal, territorial, and insular area 

requests for debris removal missions. 

 ESF #5 

 Coordinate and conduct planning and response activities with local, state, tribal, 

territorial, and insular area, and Federal governments along with public and private sector 

partners. 

 Determine the need (or lack of need) for emergency supplies, resources, and services. 

 Evaluate consolidation of ISBs/staging areas and resource movement away from staging 

to permanent locations within the affected area. 

 ESF #6 

 Coordinate through USAID/OFDA for receiving donated international goods. 

 Assess the need for, and coordinate the provision of, life-sustaining ESF #6 services, 

resources, and supplies from government agencies, NGOs, and the private sector. 

 Gather, assess, prioritize, coordinate, and communicate resource requirements. 

 Provide subject matter expertise to identify resource requirements to meet the lifesustaining needs of disaster survivors, including those with access and functional needs, 

and their household pets and service and assistance animals. 

 Gather, assess, prioritize, and communicate relevant information. 

 Communicate plans, requirements, and strategies to core capability providers. 
Response Federal Interagency Operational Plan 

D-19

 Acquire and manage resources, supplies, and services from core capability providers via 

contracts, mission assignments, IAAs, or donations.

 ESF #7 

 Coordinate the provision of logistics resources of local, state, tribal, territorial, insular 

area, and Federal entities, the private sector, and NGOs by providing comprehensive 

logistics planning, management, and sustainment resources and capabilities. 

 Acquire and manage resources, supplies, and services from core capability providers via 

contracts, mission assignments, IAAs, or donations. 

 Identify potential sites, coordinate the implementation of, and source Responder Support 

Camps in coordination with FEMA regions, as required. 

 Develop and implement plans for the delivery of critical resources to responders and 

survivors. 

 Activate ambulance services that have MOUs in place with transportation companies to 

move patients to available facilities. 

 Establish and operate logistics facilities, including the management of services related to 

lodging and feeding of incident support personnel. 

 Manage electronic data interchanges to provide end-to-end visibility of response 

resources. 

 Deploy ISB/staging area cache/kits and ISB teams, as required. 

 Provide base camp services to support deployed responders. 

 Execute fuel and mobile maintenance contract support as needed. 

 Maintain shared situational awareness to determine shortfalls and additional resource 

requirements. 

 Inventory and identify (to ESF #7) all large-space facilities/structures within 250 miles of 

the incident venue(s) that could be made available as temporary shelters, temporary 

morgues, or to support mass casualty medical operations. 

 Activate MERS and deploy life support vehicles and MERS emergency operations 

vehicle(s) to the affected area to establish a temporary operating location for the principal 

Federal official/FCO and support staff. 

 Coordinate with the RMG on recommended sourcing solutions to fulfill validated 

requirements (large quantities). 

 Identify and coordinate generator support requirements with ESF #3. 

 Reassess and adjust site location(s) for ISBs or staging areas, as required, in coordination 

with FEMA regions. 

 Identify and mitigate limiting factors and shortfalls. 

 Coordinate with affected regions to augment staging area teams and staging area kits, as 

required. 

 Coordinate distribution of durable medical equipment and disposable medical supplies. 
Response Federal Interagency Operational Plan 

D-20

 ESF #8 

 Coordinate with funeral homes/funeral directors for the handling of remains. 

 Coordinate the use of public/private facilities for alternate healthcare treatment sites. 

 Clarify requests for resources and provide animal subject matter expertise to assist 

meeting animal response needs (e.g., evacuation and sheltering of animals). 

 Provide technical assistance and coordinate with state agencies on potential needs for 

USDA Foods and possible D-SNAP requests. 

 Coordinate with local, state, tribal, territorial, and insular area agencies and private sector 

experts on requests to stabilize fragile natural and cultural resources. 

 ESF #12 

 Coordinate with local, state, tribal, territorial, insular area, and Federal governments for 

the restoration of energy during response and recovery operations. 

 Provide subject matter expertise to the private sector as requested, to assist in restoration 

efforts. 

 Serve as a Federal point of contact, through the Department of Energy (DOE), with the 

energy industry for information sharing and requests for assistance from private and 

public sector owners and operators. 

Phase 2c—Sustained Response 

End State: Federal assistance, including coordination with nongovernmental, private sector, and 

international entities, has been incorporated into response operations. (Supports PS-MO-2, PS-MO-3) 

 Tasks by Phase, by ESF 

 ESF #7 

 Shift responsibility for supply chain management to local, state, tribal, territorial, and 

insular area logistics coordinators. 

 Coordinate and implement international assistance resources and capabilities. 

 Coordinate the demobilization of unneeded resources, supplies, services, and personnel. 

 Produce plans for resource execution, sustainment, and eventual demobilization. 

 Participate in incident action planning, other adaptive planning, functional planning, and 

other efforts to support the actions of responders and protect survivors. 

 Collaborate with ESF #1, ESF #3, ESF #6, ESF #8, ESF #11, and ESF #12 to ensure the 

continued delivery of emergency relief supplies to shelters, PODs, and dispersed/shelterin-place populations. 

 Monitor and manage elements associated with the logistics supply chain; logistics supply 

chain management system status; RMG/commodity managers; replenishment actions; 

temporary housing units (THU) status; and transportation. 

 Coordinate with region(s)/JFO(s) concerning daily resource burn rates and pull 

requirements. 
Response Federal Interagency Operational Plan 

D-21

 Report field receipt of deployed commodities for incorporation into reports and shared 

situational awareness products. 

 Request space requirements from all partner departments and agencies with regards to the 

resources they are providing to support operations. 

 ESF #11 

 Provide USDA Foods to state agencies for distribution to shelters and other mass feeding 

sites and, in certain limited situations, household distribution. 

 Provide infant formula and baby food to supplement FEMA’s infant/toddler kits.

 Authorize state agencies to issue D-SNAP benefits. 

 Facilitate development and application of measures and strategies to protect, preserve, 

conserve, rehabilitate, stabilize, and guide the recovery of natural and cultural resources 

and historic properties. 

 Share best practices and assist in the development of programmatic approaches to address 

and expedite NCH-related requirements for all Federal actions/initiatives taken to 

respond to or recover from an incident requiring a coordinated Federal response. 

 Provide assistance and expertise in addressing impacts to properties of traditional 

religious and cultural importance. 

 Provide up-to-date geospatial data related to impacted NCH; develop and provide 

standard operating procedures for collecting NCH digital data; conduct geographic 

information system analyses; and disseminate geospatial products related to NCH, such 

as maps. 

 Provide technical guidance to preserve, conserve, and stabilize records, archives, and 

collections and utilize existing records management expertise to assist in the response of 

state and local records in all formats. 

 ESF #15 

 Evaluate the need for messaging regarding requests for donations. Messaging should 

focus on key shortfalls or resources that will support recovery. 

Phase 3a—Short-term Recovery 

End State: Responsibility for supply chain management has shifted to the local and state 

jurisdictions. (Supports PS-MO-2) 

 Tasks by Phase, by ESF 

 ESF #3 

 Implement and manage the FEMA Public Assistance Program and other recovery 

programs between and among local, state, tribal, territorial, insular area, and Federal 

officials, to include efforts to permanently repair, replace, or relocate damaged or 

destroyed public facilities and infrastructure. 

 ESF #7 

 Participate in the development of planning to facilitate the transition from response 

activities to recovery activities. 
Response Federal Interagency Operational Plan 

D-22

 Demobilize selected ESF #7 response efforts as the appropriate RSFs continue to 

mobilize. Selected ESF #7 support actions activate THUs while others continue to 

support actions of ESF #6 and the National Disaster Response Framework, as required. 

 Review AARs and revise plans and procedures accordingly. 

 Closeout with ISB or staging area, as appropriate. 

 Develop and implement retrograde plan. 

 Support the Response Directorate with the return of evacuees, as required. 

 Develop, coordinate, and implement a plan to donate excess resources to various local, 

state, tribal, territorial, and insular area entities, NGOs, and VOAD. 

Administration and Support 

The Logistics and Supply Chain Management core capability will follow standard protocols for 

activation, notification, deployment, and deactivation as Federal departments and agencies continue 

to maintain their roles and responsibilities under Federal laws and regulations. 

Table D-2 indicates waivers relating to the Logistics and Supply Chain Management core capability 

during a catastrophic incident. 

Table D-2: Legal Waivers 

Type Description (to include the citation of the law if applicable)

Waiver DHS: Waive “coastwise laws” under the Merchant Marine Act of 1920 that provide that 

only vessels built and owned by citizens of the United States and flagged in the United 

States may carry merchandise between U.S. ports (e.g., granting waivers to allow nonU.S. vessels to transport petroleum and refined products). A “Jones Act” waiver may be 

granted by the Secretary of Homeland Security when the Secretary determines: (1) the 

Maritime Administration at the Department of Transportation has concluded there is no 

qualified U.S.-flagged vessel available and (2) the waiver is “necessary in the interest of 

national defense.” Also, on request of the Secretary of Defense, the Secretary of 

Homeland Security shall waive these laws as necessary in the interest of national 

defense.

Waiver Federal Communication Commission: Issue notices and orders providing 

telecommunications carriers, wireless carriers, and satellite operators in disaster-affected 

areas more time to file their regular reports and providing assistance in restoring 

operations (e.g., granting waivers to allow carriers and their numbering administrators to 

“port” telephone numbers geographically outside of their rate centers).

Waiver In the event of a fuel supply emergency, the Environmental Protection Agency (EPA), 

with the concurrence of DOE, may temporarily waive a fuel or fuel additive requirement if 

doing so will alleviate the fuel supply emergency. When granted, the waiver allows use of 

a fuel that normally is not allowed in a particular time period or geographic area.
Response Federal Interagency Operational Plan 

D-23

Annex D, Tab 1: Pre-scripted Mission Assignments

PSMAs were developed to facilitate rapid response and standardize mission assignments. The 

following tables lists the most commonly used PSMAs by disaster level (e.g., level 1, level 2) during 

the period from 1998–2011, sorted by ESF. 

Table D, Tab 1-1: PSMA Level 1 

ESF # PSMAs 

Used Title

N/A 31 Regional and National Activation

1 3 Pre-declaration Activation, RRCC

1 33 Pre-declaration Activation

1 105 Pre-declaration Activation

1 133 Federal Transportation Assistance

1 136 DoD/Rotary Wing Lift (Medium)

1 138 Tactical (Ground) Transportation Support

2 35 Pre-declaration Activation

2 107 Pre-declaration Activation

2 148 Communications Support to First Responders

3 5 Pre-declaration Activation, Regional Activation

3 80 Pre-declaration Activation

3 108 Pre-declaration Activation

3 153 Infrastructure Assessment

3 160 Critical Public Facilities Pre-declaration

3 163 Drinking Water Safety/Water & Wastewater Infrastructure Assessment Technical 

Assistance to State

3 164 Drinking Water Safety/Water & Wastewater Infrastructure Assessment & Repair

3 165 Emergency Power

3 204 U.S. Army Corps of Engineers (USACE) Deployable Tactical Operations Systems

3 209 USACE Deployable Tactical Operations System Support

3 212 USACE Local Government Liaison

3 214 USACE Recovery Field Office Operations

3 216 Remote Sensing/Geographic Information System (GIS)

3 268 Debris Oversight

5 187 Contract Security Officers

5 217 U.S. Coast Guard (USCG)

5 220 USCG, FEMA Region Activation

5 224 USCG, Damage Assessment
Response Federal Interagency Operational Plan 

D-24

ESF # PSMAs 

Used Title 

5 226 Aerial Imagery

6 116 Pre-declaration Activation

6 233 HHS, Federal Operations Support

6 237 Temporary Roofing

6 241 Temporary Housing—COTR (Contracting Officer’s Technical Representative) 

and/or Technical Monitor Support to FEMA Individual Assistance Technical 

Assistance Contract (IA-TAC)

6 244 Veterinary Medical Support (non-National Disaster Medical System [NDMS])

6 249 Temporary Housing—Site Design

6 253 Animal and Plant Health Inspection Service (APHIS)

7 16 Pre-declaration Activation, RRCC

7 47 Pre-declaration Activation

7 207 USACE Logistics Support

8 49 Pre-declaration Activation

8 73 Federal Medical Station

8 118 Pre-declaration Activation

8 240 Emergency Prescription Assistance and Medical Equipment Replacement Program

8 248 Behavioral Healthcare

8 252 NDMS (includes Disaster Medical Assistance Team [DMAT], National Veterinary 

Response Team, Disaster Mortuary Operational Response Team [DMORT])

9 210 DoD Rotary Wing Lift (Medium) for Search and Rescue (SAR) (Federal Operations 

Support/Direct Federal Assistance)

9 211 USCG Search & Rescue Support

9 218 NPS Search & Rescue

10 53 Post-declaration, RRCC

10 120 Post-declaration, NRCC

10 179 Conduct Aerial Technical Analysis—Oil and Hazardous Materials Impacted Areas

10 199 USCG Strike Team Technical Assistance

10 205 EPA Technical Analysis—Oil and Hazardous Materials Response (Direct Federal 

Assistance)

10 208 EPA—Oil & Hazardous Materials Response

11 20 Pre-declaration Activation

11 94 Pre-declaration Activation

11 121 Pre-declaration Activation

12 96 Pre-declaration Activation

12 123 Pre-declaration Activation
Response Federal Interagency Operational Plan 

D-25

ESF # PSMAs 

Used Title 

13 62 Pre-declaration Activation

13 64 Pre-declaration Activation

13 180 Force Protection for Search & Rescue Personnel

15 167 USCG Public Affairs—Subject Matter Experts (SME)

15 168 OFA Subject Matter Expert (SME) support to ESF 15 Pre/Post Dec

15 170 Public Affairs Broadcast Transmission Support

15 287 Bureau of Indian Affairs—Tribal Affairs Support Pre/Post Dec

Table D, Tab 1-2: PSMA Level 2 

ESF # PSMAs 

Used Title

N/A 32 Pre-declaration Activation

N/A 76 DoD, DCO/DCE

1 3 Pre-declaration Activation, RRCC

1 77 Pre-declaration Activation

1 105 Pre-declaration Activation

2 4 Pre-declaration Activation, RRCC

2 35 Pre-declaration Activation

2 79 Pre-declaration Activation

2 146 Transportation Communications Central

3 80 Pre-declaration Activation

3 108 Pre-declaration Activation

3 151 Debris

5 40 Pre-declaration Activation

5 187 Contract Security Officers

5 220 USCG FEMA Region Activation

5 224 USCG, Damage Assessment

6 231 Corporation for National and Community Service, Field Deployment

6 251 Temporary Housing—COTR/Technical Monitor Support to FEMA IA-TAC

7 47 Pre-declaration Activation

7 117 Pre-declaration Activation

8 17 Pre-declaration Activation

8 71 Public Health Services

8 72 Medical Care and Support
Response Federal Interagency Operational Plan 

D-26

ESF # PSMAs 

Used Title

8 91 Pre-declaration Activation

8 238 HHS, Technical Assistance

8 240 Emergency Prescription Assistance and Medical Equipment Replacement Program

9 211 USCG Search & Rescue Support

10 208 EPA—Oil & Hazardous Materials Response

11 20 Pre-declaration Activation

11 94 Pre-declaration Activation

12 96 Pre-declaration Activation

13 64 Pre-declaration Activation

13 67 Pre-declaration Activation

15 167 USCG Public Affairs-SMEs

Table D, Tab 1-3: PSMA Level 3 

ESF # PSMAs 

Used Title

1 3 Pre-declaration Activation, RRCC

3 5 Pre-declaration Activation, Regional Activation

3 36 Pre-declaration Activation

3 159 Debris

3 268 Debris Oversight

5 187 Contract Security Officers

6 231 Corporation for National and Community Service, Field Deployment

7 16 Pre-declaration Activation, RRCC

7 47 Pre-declaration Activation

7 90 Pre-declaration Activation

7 117 Pre-declaration Activation

10 19 Pre-declaration Activation
Response Federal Interagency Operational Plan 

D.1-1 

Appendix 1 to Annex D: Critical Transportation 

Purpose 

The purpose of this appendix is to describe the delivery of the Critical Transportation core capability 

within the Response mission area. 

The Critical Transportation core capability provides transportation (including infrastructure access 

and accessible transportation services) for response priority objectives, including the evacuation of 

people and animals, and the delivery of vital response personnel, equipment, and services into the 

affected areas. 

The Critical Transportation (TR) critical tasks are as follows: 

 TR-Critical Task-1. Establish physical access through appropriate transportation corridors and 

deliver required resources to save lives and to meet the needs of disaster survivors. 

 TR-Critical Task-2. Ensure basic human needs are met, stabilize the incident, transition into 

recovery for an affected area, and restore basic services and community functionality. 

The Critical Transportation core capability facilitates the movement of lifesaving and life-sustaining 

resources and services through support to the assessment and reconstitution of the transportation 

infrastructure to meet operational response priorities. This core capability is organized as an 

appendix to the Logistics and Supply Chain Management (Operational Support) Annex, because it 

enables logistical or operational support, similar to the way the ground unit aligns to the Logistical 

Section in the National Incident Management System (NIMS). 

Situation 

Transportation routes are inaccessible following the disaster, delaying the delivery of critical 

lifesaving and life-sustaining Response core capabilities. 

There may be bridge collapses that severely restrict the flow of traffic in the impacted area(s). 

Highways will require some level of debris clearance and removal. Urban transportation systems 

within the major metropolitan areas are nonfunctional. Obstructions to waterways disrupt marine 

transportation and require some level of clearance or workaround. 

Within the impacted area, the ability to deliver resources via air, water, and rail is functional but 

limited. Railways within the impacted area have at least some debris across them, limiting 

movement. Several stations are damaged, and washouts require repairs before the railways will be 

fully operational. Physically accessible transportation, including public transportation, may be 

damaged or substantially unavailable, preventing evacuation by individuals with disabilities and their 

families and friends. 

During a disaster, a Temporary Flight Restriction (TFR) may be put in place over all or part of the 

airspace covering the impact area. The Federal Aviation Administration (FAA) has the authority to 

manage the aircraft moving into and out of that airspace and may also apply traffic management 

provisions within the TFR to maximize safety and support the mission needs of the unified 

command. 

There will be competition for transportation resources, requiring competing requests to be prioritized 

and deconflicted. Transportation assets and operations outside of the continental United States are 

minimal, which could prohibit or delay critical transportation response to Alaska, Hawaii, or U.S. 

territories. 
Response Federal Interagency Operational Plan 

D.1-2 

If telecommunications services (e.g., Wireless Priority Service) are not properly functioning, damage 

assessments may be unavailable, delaying the prioritization and adjudication of resources to the 

impact area. Transportation of people and resources into and out of the impact area will be delayed 

until damage assessments are complete on bridges, roads, rail, and runways. Functional planning will 

be delayed until pathways are known. 

The ability to sustain transportation services, mitigate adverse economic impacts, meet societal 

needs, and move emergency relief personnel and commodities will hinge on effective transportation 

decisions at all levels. Unnecessary reductions or restrictions to transportation will directly impact 

the effectiveness of all prevention, preparedness, response, recovery, and mitigation efforts. 

Assumptions 

General assumptions for the Response FIOP have been identified in the base plan. 

Mission 

Within the impacted area, Federal interagency partners will establish physical access through 

appropriate transportation corridors and deliver required resources to save and sustain lives and 

facilitate a seamless transition to recovery, in conjunction with whole community partners, as 

appropriate. 

Execution 

Concept of Operations 

Phase 1 

Federal Government departments, agencies, and partners work with local, state, tribal, territorial, and 

insular area government departments and agencies; NGOs; and private sector businesses during 

steady state and pre-incident operations to strengthen relationships and identify shortfalls. Through 

planning, training, and exercises, standard operating procedures, MOUs, IAAs, and other emergency 

plans that support capability are reviewed to assess the readiness and deployment posture of 

personnel, resources, and logistics support structures. Organizational structures and Federal officials 

responsible for the disaster response are pre-identified, and focus is placed on coordination with 

transportation system owners. 

DHS will identify and catalog a national inventory of engineering resources (e.g., academia, retired 

engineers, professional associations such as the Society of American Military Engineers’ Emergency 

Preparedness and Homeland Security Committee and the American Society of Civil Engineers) to 

develop a surge capacity for planning efforts and lower-level damage assessments. FEMA Logistics 

and Acquisitions personnel will explore the use of procuring transportation assets from non-impacted 

areas (e.g., recreational vehicles, regional commuter buses, school buses, vessels) to meet surge 

transportation needs. Identification and utilization of these resources will enable the Federal 

interagency partners to expand its capacity to rapidly deploy personnel and resources to facilitate the 

delivery of the Critical Transportation core capability during response. 

Phase 2 

The Federal Government alerts, deploys, and stages resources to support the assessment and 

reconstitution of the transportation infrastructure. During an incident, DOT and other Critical 

Transportation core capability support departments and agencies, structured through the NRF and 

NIMS, provide DHS with a unified structure to assemble and access key transportation-related 
Response Federal Interagency Operational Plan 

D.1-3 

information, planning, and emergency management, including prevention, preparedness, and 

response, recovery, and mitigation capabilities at headquarters and at local, regional, and state levels. 

Initial response activities include: 

 Monitoring and reporting the status of and damage to the transportation system and infrastructure 

 Identifying temporary alternative transportation solutions to be implemented by others when 

primary systems or routes are unavailable or overwhelmed 

 Implementing appropriate air traffic and airspace management measures 

 Coordinating the issuance of regulatory waivers and exemptions. 

Operations will be coordinated to restore and repair roadways, bridges, rails, ports, and national 

airspace system infrastructure. Additionally, support is provided for the transportation (including use 

of accessible vehicles) of evacuees back to the affected area and for moving affected populations, 

household pets, and service and assistance animals.

Phase 3a 

The Federal Government works to ensure that transportation-related infrastructure is operational to 

allow for the free ingress and egress of personnel, equipment, and services into the affected area. The 

focus then shifts to providing longer-term coordination of the restoration and recovery of the affected 

transportation systems and infrastructure. 

The Infrastructure Systems RSF is a complement to the response and short-term recovery efforts that 

take place under the NRF. As the ESFs demobilize, the Infrastructure Systems RSF team will 

facilitate long-term recovery operations. The intent of the Infrastructure Systems RSF is to ensure a 

seamless transition between the response and recovery phases. Upon activation, Infrastructure 

Systems RSF members should deploy early in the response phase to work with their ESF 

counterparts to shape long-term recovery actions. The Infrastructure Systems RSF focuses on four 

key ESFs during response operations: ESF #1, ESF #2, ESF #3, and ESF #12. 

Coordinating Structure 

Many ESFs support the Critical Transportation core capability. ESFs that perform tasks under this 

core capability are summarized in Figure D.1-1. Specific tasks conducted by these ESFs are 

identified in the Tasks by Phase sections (listed by ESF) below.
Response Federal Interagency Operational Plan 

D.1-4 

Figure D.1-1: Coordination of ESF Support to Critical Transportation 

Primary responsibility for management of incidents involving transportation normally rests with 

local, state, tribal, territorial, and insular area authorities and the private sector, which own and 

operate the majority of the Nation’s transportation resources. As such, a Federal response must 

acknowledge local, state, tribal, territorial, and insular area transportation policies, authorities, and 

plans that manage transportation systems and prioritize the movement of relief personnel and 

supplies during emergencies. 

ESF #1 supports Federal response operations by assisting local, state, tribal, territorial, insular area, 

and Federal Government entities, voluntary organizations, NGOs, and the private sector in managing 

transportation systems and infrastructure during domestic threats or in response to incidents. ESF #1 

provides a single hub for obtaining key transportation-related information, planning, and emergency 

management (including prevention, preparedness, response, mitigation, and recovery) capabilities at 

all levels of government. ESF #1 departments and agencies are not responsible for the movement of 

goods, equipment, animals, or people. 

DOT serves as both the coordinator and Primary Agency for ESF #1. ESF #1 primary and support 

departments and agencies maintain considerable intermodal expertise and public and private sector 

stakeholder relationships to provide transportation assistance in domestic incident management. DOT 

provides support personnel to the NRCC, Regional RRCCs, and JFOs, with assistance from 

supporting departments and agencies, as necessary, to perform ESF #1 responsibilities. DOT 

coordinates closely with DHS, who, in support of ESF #1, is responsible for the security and safety 

of transportation assets, and liaises with DHS’ Office of Infrastructure Protection to coordinate DOT 

activities with the private sector. 
Response Federal Interagency Operational Plan 

D.1-5 

The Secretary of Transportation coordinates ESF #1, consistent with DOT’s statutory mission, to 

promote fast, safe, efficient, and convenient transportation in support of the national objectives of 

general welfare, economic growth and stability, and the security of the United States. 

FEMA is responsible for providing transportation assets and services (including contracts or other 

agreements for transportation assistance) for responders, equipment, and goods, consistent with ESF 

#7. 

DoD transportation support will be provided in accordance with existing DoD guidance, the MOUs 

between DoD and DOT concerning commercial aviation programs, and the MOA between DoD and 

DOT concerning the National Defense Reserve Fleet and the Ready Reserve Force. 

DOT will coordinate with FEMA and DoD for air support. Within 6 hours of a disaster, FAA will 

develop and implement contingency air traffic and airspace management measures (e.g., temporary 

flight restrictions and specialized air traffic flow management for air transport and air mobility type 

missions) and the NRCC will have identified the prioritization and use of airfields to enable air 

support to the disaster. DOT will support local, state, tribal, territorial, and insular area officials’ 

efforts to conduct damage assessments to evaluate ground transport (e.g., roads, railways) conditions 

and restrictions (e.g., weight restrictions). USACE’s Debris Planning and Response Teams (PRT), 

including contract support, removes and disposes of debris to provide clearance of roadways. 

DOT will provide guidance to local, state, tribal, territorial, and insular area officials on routing for 

evacuations. During mass evacuations, consistent with the Mass Evacuation Incident Annex, FEMA 

provides transport for persons, including individuals who require accessible transportation, provided 

the individuals meet the following criteria: 

 Evacuees can be accommodated at both embarkation points and at destination general population 

shelters. 

 Evacuees can travel on commercial long-haul buses, aircraft or passenger trains, or lift-equipped 

buses. 

 Evacuees do not have medical needs indicating the need for transportation by ESF #8. 

Consistent with the Mass Evacuation Incident Annex and the Post-Katrina Emergency Management 

Reform Act, FEMA is responsible for evacuation of service and companion animals. 

FEMA will support states by providing limited bus evacuations for ambulatory patients, possibly 

without medical oversight, between medical facilities and within limitations and capabilities of assets 

and drivers. 

For incidents involving a blast or explosion associated with a chemical, biological, radiological, or 

nuclear (CBRN) threat agent resulting in a contaminated debris field, ESF #3 leads Federal actions to 

clear critical transportation routes of CBRN-contaminated debris, during the emergency phase, in 

consultation with ESF #10. ESF #10 assumes leadership for management of CBRN-contaminated 

debris after the emergency phase is over. 

ESFs that provide support to the delivery of the Critical Transportation core capability are included 

in the following section. 

Critical Transportation Tasks 

Mission Objectives 

 TR-MO-1: Coordinate the planning and operational analysis to deliver critical transportation 

requirements. (Supports TR-Critical Task-1, TR-Critical Task-2) 
Response Federal Interagency Operational Plan 

D.1-6 

 TR-MO-2: Conduct assessments of the condition and safety of transportation pathways and plan 

accordingly. (Supports TR-Critical Task-1, TR-Critical Task-2) 

 TR-MO-3: Prioritize the restoration of damaged/unusable pathways, identify alternate pathways, 

and coordinate rapid repairs to facilitate responder access and provide basic services. (Supports 

TR-Critical Task-1) 

 TR-MO-4: Assess resource requirements to support the reconstitution of the transportation 

infrastructure. (Supports TR-Critical Task-2) 

 TR-MO-5: Prioritize, adjudicate, and allocate resources to deliver critical transportation 

requirements. (Supports TR-Critical Task-2) 

 TR-MO-6: Support the evacuation of disaster survivors. (Supports TR-Critical Task-1, TRCritical Task-2) 

 TR-MO-7: Provide delivery of vital response personnel, equipment, and services into the 

impacted area. (Supports TR-Critical Task-1) 

 TR-MO-8: Respond to, coordinate, and prioritize the delivery of resources to disaster survivors 

and responders in the impacted area. (Supports TR-Critical Task-2) 

Phase 1a—Normal Operations 

End State: Plans have been reviewed, updated, and exercised and coordination has occurred between 

local, state, tribal, territorial, insular area, and Federal governments and voluntary and private sector 

representatives. (Supports TR-MO-1) 

Tasks by Phase, by ESF 

 ESF #1 

 Develop a plan to coordinate transportation support functions to provide transportation 

infrastructure information among NGO participants. 

 Review, update, and exercise the following: 

‒ Existing response plans and standard operating procedures to incorporate best 

practices and lessons learned 

‒ Key personnel rosters with accurate contact information (e.g., FCO, NRCC, RRCC, 

JFO, and special teams) 

‒ Develop and review PSMAs, MOUs, and IAAs. 

 Conduct detailed gap analysis of transportation infrastructure with local, state, tribal, 

territorial, and insular area partners to ascertain expected Federal support resources. 

 ESF #2 

 Maintain effective communications by updating point-of-contact lists, verifying video 

teleconference and telecommunications capabilities, and testing information systems. 

 ESF #5 

 Predesignate key Federal officials and identify response organizational structures in 

anticipation of an incident (e.g., FCO and the locations of JFOs). 
Response Federal Interagency Operational Plan 

D.1-7 

 ESF #7 

 Maintain backup generators for FAA assets in preparation for a potential large-scale 

power outage. 

Phase 1b—Elevated Threat 

End State: Evacuation planning has been coordinated with public and private sector transportation 

system owners and operators. (Supports TR-MO-2) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Pre-incident coordination with public and private stakeholders has led to the preidentification of resources necessary for the reconstitution of transportation infrastructure. (Supports 

TR-MO-1, TR-MO-4) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 2a—Immediate Response 

End State: Information regarding the operational environment has been analyzed to gauge 

preliminary planning and response needs. (Supports TR-MO-1, TR-MO-2, TR-MO-3, TR-MO-4, 

TR-MO-5) 

 Tasks by Phase, by ESF 

 ESF #1 

 Initiate reporting to the Office of the Secretary of Transportation, NOC Watch, NICC, 

NRCC, FBI Strategic Information and Operations Center, Transportation Security 

Operations Center, DOT operating administrations and regional offices, and the Regional 

Emergency Transportation Coordinator (RETCO) and Regional Emergency 

Transportation Representatives. 

 Activate the DOT Emergency Response Team. 

 Staff ESF #1 at the NRCC. 

 Dispatch staff to the NRCC, RRCC(s), JFO(s), and Evacuation Liaison Team. 

 Activate the RETCOs and Regional Emergency Transportation Representatives. 

 Inform and invite participation by ESF #1 support departments and agencies. 

 Identify temporary alternative transportation solutions that can be implemented by others 

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

 Work with transportation system owners and operators to coordinate the pre-positioning 

of resources to complete the restoration of transportation infrastructure following a 

disaster. 
Response Federal Interagency Operational Plan 

D.1-8 

 Coordinate with ESF #5, ESF #6, ESF #8; local, state, tribal, territorial, and insular area 

governments; the private sector; and voluntary organizations to identify and deploy 

capabilities to transport identified populations. 

 Determine the time available to conduct operations and the distance to (and availability 

of) shelters. 

 The Evacuation Liaison Team is activated to support coordination with local, state, tribal, 

territorial, and insular area governments and nonprofit and private sector participants. 

 Provide transportation coordination and analysis for evacuation operations and 

evacuation route conditions. 

 Coordinate with DHS to initiate emergency permit and waiver requests to facilitate 

evacuation, including: 

‒ Temporary relief from specific safety regulations to allow direct response or relief 

transportation services to continue to a declared disaster or emergency from the 

Federal Motor Carrier Safety Administration 

‒ Truck size and weight limit permits from state Departments of Transportation 

‒ Jones Act waivers from DHS 

‒ Fuel quality waivers from EPA. 

 Activate specialized aviation support units through the Department of Commerce 

(DOC)/National Oceanic and Atmospheric Administration (NOAA)/Office of Marine and 

Aviation Operations. 

 Coordinate air operations requirements with ESF #1, ESF #5, and ESF #13. 

 Identify evacuation shortfalls and outstanding transportation needs. 

 Monitor and report the status of, and damage to, the transportation system and 

infrastructure as a result of the incident. 

 Maintain coordination with ESF #1/DOT/FAA to enable air operations through air 

navigation services measures, including air traffic control, flow management, and 

airspace measures. 

 Coordinate the availability of privately owned transportation. 

 Coordinate with Federal departments and agencies to determine evacuation support 

requirements. 

 Inventory and make available cargo and passenger aviation assets and report availability 

to the MCC in the NRCC to read inventory and report availability to the MCC. 

 Deploy Federal Air Marshals Transportation Security Advanced Team through 

DHS/Transportation Security Administration to affected airports. 

 Coordinate with USCG and local, state, tribal, territorial, and insular area departments 

and agencies to manage maritime traffic and provide maritime port and infrastructure 

awareness and analysis. 

 If the International Assistance System were to be activated, the USAID/OFDA will begin 

to identify commercial assets in the region to help with receiving international donations 

and transport as directed. 
Response Federal Interagency Operational Plan 

D.1-9 

 Review all necessary cargo and passenger aviation activities, inventory and make 

available cargo and passenger aviation assets, and report availability to the MCC in the 

NRCC to inventory and report availability to the MCC. 

 Provide an assessment of the transportation and infrastructure systems to the NOC and 

NRCC. 

 Notify, activate, and/or deploy pre-positioned equipment teams. 

 Provide an update on the status of transportation systems and provide emergency 

transportation management recommendations to DHS. Continue updates as necessary. 

 Request Deployable Distribution Expeditionary Depot availability through DoD, if 

necessary. 

 ESF #3 

 Provide public works and engineering-related support to activities relating to the debris 

clearance of evacuation routes. 

 Staff ESF #3 at the NRCC. 

 ESF #5 

 Provide situational awareness and coordination of mass evacuation efforts. 

 Develop requirements for manifesting evacuees. 

 Support Federal evacuation support actions, as requested. 

 ESF #6 

 Identify general population shelters as close to the embarkation and debarkation points as 

safely possible. 

 Identify resources to meet household pets and service and assistance animals’ evacuation 

requirements in coordination with ESF #11 and ESF #1. Determine the distance and 

number of household pets and service and assistance animals that will be evacuated. 

 Provide information for and coordination of mass care and emergency assistance and 

human services support for non-medical evacuees when requested by the state. 

 Coordinate available Federal, private sector, and voluntary organization resources to 

support feeding and sheltering along evacuation routes. 

 Initiate capabilities to support the tracking of evacuee movement and reunification 

services through FEMA in coordination with the private sector and NGOs (where 

appropriate). 

 Identify shelter requirements for evacuees in coordination with evacuation planners and 

mass care providers. 

 Coordinate with FEMA Regions to assist/support state emergency evacuation (as 

requested by the state). 

 ESF #7 

 Deploy Mobile Communications Office Vehicle drivers to distribution centers (DC) for 

deployment at Deputy Assistance Directors’ direction, as described in the International 

Assistance System process. 
Response Federal Interagency Operational Plan 

D.1-10

 If required, USAID/OFDA would contact DoD to request use of an air base to receive 

donations from international donors through the International Assistance System process. 

 Provide goods and services to support evacuation efforts and transportation services. 

 Manage transportation of material from storage facilities and vendors to incident 

survivors, with emphasis on the surge and sustainment portions of response. 

 Initiate actions to deploy and deliver appropriate Strategic National Stockpile initial 

push-packages to an ISB/Staging Areas or other designated reception location. 

 Coordinate with NRCC and the Logistics Management Center. 

 Activate links to the private sector (e.g., secure Critical Emergency Operations 

Communications Link and request the inventory and identification of available 

transportation assets; potential mass shelter facilities; and medical facilities, personnel, 

equipment, and supplies). 

 Execute fuel and mobile maintenance contract support as needed. 

 FEMA Logistics Transportation will collaborate, determine, source, and implement 

support requirements. FEMA will provide access to storage facilities as needed. 

 Commence transportation of Execution Schedule Assets. Continue to execute at a 

minimum of 2-hour intervals (all departments and agencies should refer to that schedule). 

 Alert GSA to be prepared to procure needed items, support transportation requests, and 

deploy GSA leasing specialists. 

 ESF #8 

 Coordinate medical staging and medical evacuation of patients. 

 Provides supplemental assistance in identifying the Public Health, Healthcare, and 

Emergency Medical Services needs of evacuees, including patient evacuation and child 

reunification with an appropriate adult. 

 Mobilize resources for immediate pickup at the designated air/ground departure point. 

 Initiate actions to deploy and deliver appropriate Strategic National Stockpile initial 

push-packages to an ISB/staging area or other designated reception location. Coordinate 

with NRCC and Logistics Management Center. 

 Deploy requested NDMS DMAT caches using secure transportation. FEMA and other 

ESF #8 partners provide access to storage facilities as needed. 

 ESF #11 

 Provide planning assistance to the states for the evacuation of household pets, when 

mission assigned. 

 Gather USDA Foods’ inventories in affected areas and provide to ESF #6.

 ESF #13 

 Provide support to local, state, and tribal law enforcement to secure the perimeter of the 

impacted area, including secondary and tertiary roads. 

 Coordinate with local, state, tribal, territorial, and insular area law enforcement as well as 

ESF #13 to ensure the security of transportation assets used for evacuation. 
Response Federal Interagency Operational Plan 

D.1-11

 Provide support of local, state, tribal, territorial, and insular area public safety and 

security measures (e.g., crowd control, traffic direction, and control of contraflow lanes 

used in evacuations). 

 ESF #15 

 Provide public messaging to notify the affected population of evacuation routes and other 

emergency information through FEMA EA. 

 Support responders and local, state, tribal, territorial, and insular area government 

officials in providing accurate, coordinated, and timely public information to affected 

audiences. 

Phase 2b—Deployment 

End State: Activation and deployment of transportation assessment teams has yielded information 

necessary for operational coordination. Priorities for the coordination and restoration of critical 

infrastructure have been established, and Federal resources in support of critical transportation efforts 

have been prioritized and deployed to the affected area. (Supports TR-MO-2, TR-MO-3, TR-MO-5, 

TR-MO-6, TR-MO-7, TR-MO-8) 

 Tasks by Phase, by ESF 

 ESF #1 

 Coordinate with local and state departments of transportation on operations to restore and 

repair roadways, bridges, rails, ports, and national airspace system infrastructure. 

 Provide resources and coordinate support to local, state, tribal, territorial, and insular area 

evacuations of the affected population. 

 Support local, state, tribal, territorial, and insular area governments in evaluating evacuee 

reception capabilities throughout the impacted area and surrounding region. 

 Support local, state, tribal, territorial, and insular area governments in coordinating 

transportation assets, including accessible transportation at reception sites to transport 

evacuees to appropriate shelters. 

 Enable air operations through air navigation services measures, including air traffic 

control, flow management, and airspace measures. Coordinate air operations 

requirements with ESF #1, ESF #5, and ESF #13. 

 Develop requirements for manifesting evacuees. 

 Coordinate with the energy industry to ensure fuel is available to responders and 

individuals along the evacuation route. Private sector fuel distributors identify specific 

retail outlets to remain open and dispense fuels to emergency responders and/or evacuees. 

 Coordinate with local, state, tribal, territorial, and insular area law enforcement.

 Identify shortfalls and use additional capabilities to transport identified populations, 

support required pet evacuation capabilities, and provide reception capabilities 

throughout the impacted area and surrounding region while maintaining tracking of 

evacuees. 

 Coordinate evacuation routes with local, state, tribal, territorial, and insular area 

departments and agencies; private sector and voluntary organizations.
Response Federal Interagency Operational Plan 

D.1-12

 Coordinate the impact of outflow of evacuating persons and the transportation 

requirements for the entry of response teams and supplies into the affected area. 

 Provide emergency transportation management recommendations to DHS, based on the 

status of the transportation system. 

 Provide critical transportation for survivors including individuals with access and 

functional needs, such as individuals with disabilities. 

 ESF #3 

 Conduct restoration of navigation pathways, including air, surface, and waterways. 

 Coordinate with local, state, tribal, territorial, and insular area governments to support 

debris-removal operations that align with transportation priorities. 

 Advise state/local representatives on the safety of infrastructure to support reentry 

decision making. 

 Provide technical assistance to support the rapid recovery and reconstitution of critical 

waterways, channels, and ports (including vessel removal, significant marine debris 

removal, emergency dredging, and hydrographic surveys). 

 ESF #5 

 Activate ESF #1 at the national and regional levels to provide coordination and technical 

assistance. 

 Provide reports on the status of evacuation, repopulation, and transportation to support 

shared situational awareness and the common operating picture. Coordinate with local, 

state, tribal, territorial, and insular area entities and private sector and voluntary 

organization transportation service providers to ensure that vehicles and vehicle operators 

are available and are dispatched to pick-up points. 

 Provide support to coordinate the evacuation of household pets. 

 ESF #6 

 Identify requirements and request transportation resources for the delivery of lifesustaining supplies and services to the affected area 

 Identify, request, and acquire transportation resources for the delivery of life-sustaining 

supplies and services to the affected area. 

 Initiate outreach to vendors, NGOs, and national voluntary organizations active in 

disasters to acquire additional support vehicles for mobile feeding activities. 

 Coordinate available Federal resources to support feeding and sheltering along the 

evacuation routes. 

 ESF #8 

 Coordinate medical staging and medical evacuation to patients. 

 Identify medical evacuation shortfalls through NDMS. FEMA’s National Ambulance 

Contract provides ground transportation, including accessible transportation for people 

with mobility disabilities, and DoD, if mission assigned, may register patients and 

provide air transportation outside of the impacted areas. 
Response Federal Interagency Operational Plan 

D.1-13

 ESF #10 

 Support the identification of safe evacuation and ingress routes and assess the nature and 

extent of contamination, if transportation infrastructure or routes are contaminated by oil 

or hazardous materials. 

 ESF #11 

 Deliver needed and requested USDA Foods and infant formula and baby food. 

 Conduct surveys and evaluations for archaeological resources, historic structures, cultural 

landscapes, biological resources, wetlands, and critical habitats. 

 Recommend mitigation activities for both natural and cultural resources to reduce the 

impacts of repairs, road surveys, and construction. 

 ESF #13 

 Support the security of transportation assets used for evacuation. 

 ESF #15 

 Provide public messaging to notify the affected population of evacuation routes and other 

emergency information. 

Phase 2c—Sustained Response 

End State: Infrastructure assessments have been performed, and stabilization of critical transportation 

infrastructure has been completed. Survivor evacuation is complete, and vital resources and services 

have been delivered to disaster survivors and responders within the impacted area. (Supports TRMO-2, TR-MO-3, TR-MO-6, TR-MO-7, TR-MO-8) 

 Tasks by Phase, by ESF 

 ESF #1 

 Identify shortfalls and reposition or demobilize resources from areas where objectives 

have been achieved. 

 ESF #3 

 Coordinate with local, state, tribal, territorial, and insular area governments to support 

debris removal operations that align with transportation priorities. 

 ESF #6 

 Develop a strategy for allowing the population to return to the affected area without 

disrupting response operations or putting strain on local resources (e.g., feeding, 

sheltering, power distribution, roads, fuel, and security). 

‒ Determine that the affected area is safe for individuals to return and that the 

infrastructure can sustain a return of the population. 

‒ Coordinate the transportation of evacuees back to the affected area and provide 

vehicles, including accessible vehicles. 

‒ Determine housing options, including return to affected areas, for evacuees 

temporarily displaced to locations away from the home of record. 
Response Federal Interagency Operational Plan 

D.1-14

 ESF #8 

 Develop a strategy for medical patient repatriation as healthcare facilities in the affected 

area return to service. 

 ESF #10 

 Clean up and/or decontaminate transportation infrastructure and routes as appropriate if 

they are contaminated by oil or hazardous materials. Assume leadership from ESF #3 for 

management of CBRN-contaminated debris. 

Phase 3a—Short-term Recovery 

End State: Transportation infrastructure has been restored to allow the free ingress and egress of 

personnel, equipment, and services into the affected area. (Supports TR-MO-7)

 Tasks by Phase, by ESF 

 ESF #1 

 Provide longer-term coordination of the restoration and recovery of the affected 

transportation systems and infrastructure. 

Administration and Support 

The Critical Transportation core capability will follow standard protocols for activation, notification, 

deployment, and deactivation with each Federal department and agency continuing to maintain its 

roles and responsibilities under Federal laws and regulations. 

Table D.1-1: Critical Transportation Core Capability Permits and Waivers 

Type Description

Permit and 

Waiver

The Federal Motor Carrier Safety Administration may provide temporarily relief from 

specific safety regulations to allow direct response or relief transportation services to 

continue to a declared disaster or emergency. This condition allows covered drivers to 

drive longer hours than would otherwise be permitted.

Permit and 

Waiver

Grant exemptions under 49 U.S.C. § 40109 to permit certain air carriers to engage in 

foreign air transportation of people and property (for compensation) between any point 

not in the United States and any point in the United States for the evacuation of people 

from affected areas and to carry personnel relief supplies in support of the relief efforts.

Permit and 

Waiver

Grant exemptions under 49 U.S.C. § 40109 to issue emergency exemptions to permit 

air carriers normally licensed only for private air transportation to offer their services to 

the public at large, including government and private relief organizations, to assist in 

relief efforts.

Permit and 

Waiver

DOT grants special authorization under 14 C.F.R. § 375.70 to permit foreign civil 

aircraft to be used to carry evacuees and other persons and relief supplies without 

charge, to the extent those operations would not otherwise be authorized under 14 

C.F.R. § 375.35.

Permit and 

Waiver

Grant carriers licensed under 14 C.F.R. Part 125 emergency exemption authorities 

from the provisions of 49 U.S.C. § 41101 to allow those carriers to provide assistance 

in the carriage of freight and people affected by the disaster and the transport into the 

affected areas of relief and personnel supplies.
Response Federal Interagency Operational Plan 

D.1-15

Appendix 1 to Annex D, Tab 1: Resource and Team Cache

The Resource and Team Cache spreadsheet is an inventory of resources and teams from various 

Federal departments and agencies and that, if available, could be activated and deployed. This is not 

an all-inclusive list but a sampling of the array of Federal resources that can be applied; however, in 

the case of suspected or actual terrorist incidents, investigation, counterterrorism response and related 

intelligence activities would fall under the Prevention mission area to resolve the threat. The table 

below lists resources by core capability and ESFs that are being supported and provides a brief 

description of the services provided by the team(s). This list may be used to determine if a resource 

exists; however, it does not indicate that the resource is either available or deployable at the time a 

disaster occurs. The FIOP is designed to be an all-hazard no-notice plan that describes how local, 

state, tribal, territorial, insular area, and Federal governments provide for the needs of survivors 

following an emergency or disaster. The Resource and Team Cache lists chemical, biological, 

radiological, nuclear, or high-yield explosive (CBRNE) teams among other incident-specific 

specialty teams and captures their capabilities so that they can be considered for deployment to 

satisfy specific needs. 

Table D.1, Tab 1: Resource and Team Cache 

Core Capability ESF Support Capability Description

TR ESF #1 Air Component 

Coordination 

Element

Provides coordination assistance to the Joint 

Air Operations Center.

TR ESF #1 Airborne Command 

and Control—

Emergency 

Management 

Support

Promotes the safe flow of high-density SAR air 

traffic in coordination with the FAA; coordinates 

and prioritizes time-critical survivor data among 

ground, air, and command elements; and 

manages and expedites search-and-rescue 

efforts.

TR ESF #1 Airspace Control 

(Ground)

Provides air traffic control from ground 

locations for the purposes of providing visual 

flight rules and reconstitution of visual flight 

rule tower services and visual flight rule 

operations.

TR ESF #1 Rotary Wing Lift 

(Heavy)

Supports the movement of personnel and 

supplies through the use of heavy lift rotary 

wing aircraft.

TR ESF #1 Rotary Wing Lift 

(Medium)

Supports the movement of personnel and 

supplies through the use of medium lift rotary 

wing aircraft.

TR ESF #1 Strategic 

Transportation 

Support

Supports the movement of cargo and/or nonmedical personnel.

TR ESF #1 Tactical (Ground) 

Transportation 

Support

Provides ground transportation resources to 

support the movement of cargo and/or 

passengers.

TR ESF #3 Emergency Route 

Clearance

Provides support for the clearance of routes.
Response Federal Interagency Operational Plan 

D.1-16

Core Capability ESF Support Capability Description

TR ESF #11 Cultural Resources 

Emergency 

Response Team

Supports the protection of natural and cultural 

resources and historic properties.

TR ESF #1 Evacuation Liaison 

Teams

Provides resources for evacuation 

coordination, including liaison teams and 

transportation system and coordination 

support. Participates in evacuation planning 

and identifying assets to support evacuations.

TR ESF #1 Federal 

Transportation 

Assistance

Monitors and reports the status of and damage 

to the transportation system and infrastructure 

resulting from the incident; identifies alternative 

transportation solutions that can be 

implemented by others when infrastructure are 

damaged, unavailable, or overwhelmed; 

coordinates restoration and recovery of 

transportation infrastructure; and performs 

activities conducted under the direct authority 

of DOT elements as these relate to aviation, 

maritime, surface, railroad, and pipeline 

transportation.

TR ESF #1 RETCO RETCOs coordinate and provide assistance to 

other local, state, tribal, territorial, insular area, 

and Federal entities in emergency 

preparedness and response for transportation 

services. RETCOs act as a single point of 

contact during major, Presidentially declared 

incidents to expedite and validate requests to 

DOT by the FCO or the principal Federal 

official at the incident site. However, the 

Secretary can designate another official in this 

capacity on the basis of the nature and extent 

of the disaster or major incident.

TR ESF #8 Federal Rail 

Evacuation Support

Provides pre-planning and coordination 

support during rail evacuations.

TR ESF #1 Transportation 

Security Advanced 

Team

Supports evacuation operations and surge 

requirements in the affected area and develops 

support requirements to continue the mission 

of transportation security related operations.

TR ESF #1 Transportation 

Security Forward 

Team

Supports evacuation operations or surge 

requirements in the affected area to 

expeditiously screen passengers and property 

that will be carried aboard passenger aircraft.

TR ESF 3 Vessel 

Salvage/Vessel 

Debris Assessment 

and Removal 

(Direct Federal 

Assistance)

Conducts assessment and removal of eligible 

vessels and vessel debris in support of 

operations.
Response Federal Interagency Operational Plan 

D.1-17

Core Capability ESF Support Capability Description

TR ESF #5 Damage 

Assessment

Conducts aerial and waterborne damage 

assessments.

TR ESF #7 Transportation 

Support

Provides fixed-wing transportation support for 

cargo and/or personnel.

TR ESF #7 Vessel 

Transportation 

Support

Provides vessel transportation support for 

cargo and/or personnel.

TR ESF #8 Transportation of 

Medical/Casualty 

Personnel and/or 

Cargo

Provides aircraft transportation for medical 

and/or personnel evacuation.

TR ESF #3 Emergency Road 

Chainsaw Crew

Provides chainsaw crews to assist in debris 

clearing.

TR,

Infrastructure 

Systems (IS)

ESF #3 Debris Oversight Provides support for oversight of state and/or 

local entities’ debris operations.

TR, IS ESF #3 Debris PRT Support demolition, clearance, removal, 

transport, temporary storage, segregation, 

reduction, and, ultimately, disposal of debris.

TR, IS ESF #3 Debris Team Debris management refers to the collective 

operations of demolition, clearance, removal, 

transport, temporary storage, segregation, 

reduction, and, ultimately, disposal of debris, 

whether generated by natural disaster or 

terrorist event. Debris may be largely woody in 

nature resulting from hurricanes, tornadoes, or 

coastal storms; construction and demolition 

material resulting from earthquakes or acts of 

terrorism; and household contents resulting 

from flooding or any of the other 

aforementioned threats. Reduction operations 

are typically accomplished by grinding, 

chipping, or incinerating, and the preferred 

method of disposal is to deposit debris in 

locally provided landfills. Recycling, particularly 

as related to construction and demolition 

material, is desirable as a means of preserving 

landfill capacity.

Environmental 

Response/ Health 

and Safety (EH)

ESF #12

National 

Atmospheric 

Release Advisory 

Center

Provides tools and services to map the 

probable spread of hazardous material 

accidentally or intentionally released into the 

atmosphere. The Interagency Management 

and Atmospheric Assessment Center (IMAAC) 

provides atmospheric plume predictions to 

determine if taking protective action is 

necessary.
Response Federal Interagency Operational Plan 

D.1-18

Core Capability ESF Support Capability Description

EH ESF #10 EPA CBRN

Consequence 

Management 

Advisory Team

Provides scientific and technical support for all 

phases of environmental response to a CBRN 

incident, including site characterization, 

building and structure decontamination, 

environmental cleanup, and clearance for use; 

manages EPA’s Airborne Spectral Photometric 

Environmental Collection Technology 

(ASPECT) fixed-wing aircraft, which provides 

chemical/radiological plume mapping; and 

operates EPA’s mobile chemical warfare agent 

laboratories known as Portable High 

Throughput Integrated Laboratory Identification 

Systems.

EH ESF #10 EPA Environmental 

Response Team

Provides scientific and technical expertise, 

including health and safety, environmental 

sampling, air monitoring, toxicology, risk 

assessment, waste treatment, contaminated 

water/scientific divers; and site 

decontamination and cleanup; provides fieldanalytical and real-time air monitoring with EPA 

mobile laboratories known as Trace 

Atmospheric Gas Analyzers.

EH ESF #10 Fixed Laboratories Provide capability to analyze environmental 

samples for toxic industrial chemicals.

EH ESF #10 Fixed Laboratory—

Radiation

Provides capability to perform routine and 

emergency radio analysis of environmental 

samples.

EH ESF #10 EPA Fixed-wing 

Aircraft for Aerial 

Air Monitoring

The ASPECT aircraft is managed by EPA’s 

CBRN Consequence Management Advisory 

Team and provides chemical/radiological 

plume mapping. It is also capable of collecting 

high-resolution digital photography and video 

and can take thermal and night images.

EH ESF #10 EPA Radiological 

Environmental 

Assessment 

Equipment

Provides mobile laboratories and sample 

preparation trailers, fixed and deployable 

RadNet monitors, field radiological scanning 

systems, sampling equipment, and hand-held 

monitors.

EH, On-scene 

Security, 

Protection, and 

Law Enforcement 

(OP)

ESF #10,

ESF #13

EPA National 

Criminal 

Enforcement 

Response Team

Provides criminal investigative expertise, 

including evidence collection, chain of custody, 

and other investigative and forensic technical 

assistance, particularly for contaminated 

environments, and law enforcement liaisons to 

support EPA OSCs and other EPA response 

personnel.
Response Federal Interagency Operational Plan 

D.1-19

Core Capability ESF Support Capability Description

EH, IS ESF #3,

ESF #10

Response Support 

Corps

EPA personnel trained to support EPA’s 

Incident Management Teams and other 

response venues (e.g., EPA headquarters and 

Regional emergency operations centers 

[EOCs]) for ESF #3, ESF #10, and other EPA 

NRF/FIOP support functions.

EH ESF #10 Scientific Support 

Coordinators

Scientific Support Coordinators, as defined in 

the National Oil and Hazardous Substances 

Pollution Contingency Plan, may be designated 

by the Federal On-scene Coordinator (OSC) 

for oil and hazardous materials spills to serve 

as the principal advisors for: addressing 

scientific issues, communicating with the 

scientific community, and coordinating 

requests for assistance from state and Federal 

agencies regarding scientific studies. Areas of 

expertise include predicting the movement of 

releases; assessing the environmental and 

health impacts of releases; and advising on 

environmental response options. Generally, the 

EPA provides the Scientific Support 

Coordinator for inland zone incidents, and the 

DOC/NOAA provides the Scientific Support 

Coordinator for coastal zone incidents.

EH ESF #10

OSCs

Coordinates the on-scene, tactical response to 

oil and hazardous materials incidents, including 

assessment of the extent and nature of 

environmental contamination; assessment of 

environmental cleanup options; and 

implementation of environmental cleanup, 

including decontaminating buildings and 

structures and management of wastes. EPA 

generally provides the Federal OSC for 

incidents in inland areas, while USCG provides 

the Federal OSC for incidents in coastal areas.

EH ESF #10 DOC/NOAA DOC/NOAA/National Weather Service (NWS) 

provides spot forecasting and incident 

meteorology tailored to support response 

activities

EH ESF #10 EPA Radiological 

Emergency 

Response Team

Following a radiological incident, provides 

advice on protective measures to ensure public 

health and safety; assessments of dose and 

impact of release to public health and the 

environment; monitoring, sampling, laboratory 

analyses and data assessments to assess and 

characterize environmental impact; and 

technical advice and assistance for 

containment, cleanup, restoration, and 

recovery.
Response Federal Interagency Operational Plan 

D.1-20

Core Capability ESF Support Capability Description

EH ESF #10 National Strike 

Force

The USCG National Strike Force is a special 

team available to assist OSCs in their 

preparedness and response duties. Teams 

respond to actual or potential discharge and/or 

uncontrolled release of oil or hazardous 

materials. Provides oil and hazardous material 

spill support, including technical assistance, 

assessment, and oversight for cleanup 

activities.

Fatality 

Management 

Services (FM)

ESF #8 Mortuary Affairs 

Assistance

Provides personnel in support of recovery and 

transport of remains to collection points and 

mortuary affairs facilities and the preparation 

and shipment of remains to designated 

locations for final disposition.

IS ESF #12 Energy 

Infrastructure 

Response Team

Energy infrastructure responders that are 

available to respond to an event location to 

minimize disruptions to energy.

IS ESF #12 Homeland 

Infrastructure 

Foundation Level 

Data

Provides access to federally-sponsored data 

sets, geospatial software tools, and 

training/education resources to meet mission 

needs.

IS ESF #5 Modeling, 

Simulation, 

Analysis, and 

Geospatial Support 

(Federal 

Operations 

Support/Technical 

Assistance)

Provides critical infrastructure data, geospatial 

products, modeling, simulation, and analysis 

support.

IS ESF #3 Critical Public 

Facilities

Provides support for critical public facilities.

IS ESF #3 Emergency Power Provides Type I, Type II, and Type III 

Generator Response Packages.

IS ESF #3 FEMA Public 

Assistance for 

Drinking Water and 

Wastewater 

Infrastructure

Provides water-sector experts to assist FEMA 

Public Assistance program staff with watersector activities.

IS ESF #3 Infrastructure 

Assessment

Supports structural evaluations of primarily 

residential buildings to determine whether 

damaged or potentially damaged buildings are 

safe for use of if entry should be restricted or 

prohibited.

IS ESF #3 Drinking Water 

Safety/Water & 

Wastewater 

Infrastructure 

Assessment and 

Repair

Provides assessments, evaluation, and 

design/build response and recovery activities 

for drinking water and wastewater systems and 

storm water infrastructure.
Response Federal Interagency Operational Plan 

D.1-21

Core Capability ESF Support Capability Description

IS ESF #3 Drinking Water 

Safety/Water & 

Wastewater 

Infrastructure 

Assessment 

Technical 

Assistance to State

Provides technical assistance to jurisdictions 

for the drinking water and wastewater 

infrastructure/safety mission.

IS ESF #3 Emergency Power Provides temporary emergency power 

generation to the affected area.

IS ESF #3 Infrastructure

Assessment PRT

Provides assets and support personnel to 

execute rapid structural assessments of 

affected infrastructure—primarily residential. 

USACE also provides assistance for missions, 

including electrical, mechanical, geotechnical, 

structural engineering, US&R, and water/water 

infrastructure assessments and repairs.

IS ESF #3 Prime Power 249th 

Engineer Battalion

Assesses critical facilities to determine 

generator and other requirements for 

temporary emergency power.

IS ESF #3 Technical 

Assistance to the 

State

Provides technical assistance to jurisdictions to 

aid them in accomplishing priority missions.

IS ESF #3 US&R Structural 

Specialist Cadre

Deploys specially trained and equipped 

structural engineers to augment FEMA US&R 

task forces, Incident Support Teams (IST), 

military technical rescue organizations, and 

general purpose troops during structural 

collapse incidents and other disaster response 

missions. This rescue engineering capability 

provides technical support and advice to task 

force leaders and commanders to assess 

damage, mitigate hazards, enable safe entry, 

and assure mobility throughout a disaster site 

to enable rescue and lifesaving operations. 

The US&R Program develops doctrine, training 

programs, and national standards for structural 

collapse response operations, conducts initial 

training courses, advanced coursework, 

exercises and continuing education for all 

FEMA US&R Structures Specialists and 

others, under ESF #9 of the NRF.

IS ESF #8 Food Emergency 

Response Network

Integrates the Nation’s food-testing 

laboratories at Federal, state, and local levels 

into a network of capable responding to 

emergencies involving food contamination.
Response Federal Interagency Operational Plan 

D.1-22

Core Capability ESF Support Capability Description

IS ESF #12 EAGLE-I capability 

to monitor the 

Nation’s energy 

infrastructure in 

near real-time and 

geospatially map 

energy assets and 

systems.

Provides access to the electric grid, the 

Nation’s petroleum and natural gas networks. 

Mapping functionality within EAGLE-I includes 

the ability to add real-time weather hazards 

such as earthquakes, floods, hurricanes,

volcanoes, wildfires, and weather watches and 

warnings.

IS, Situational 

Assessment (SA)

ESF #5 Critical 

Infrastructure Crisis 

Action Team

Provides integrated situational awareness to 

DHS leadership and critical infrastructure 

partners to reduce risk, prevent damage and 

enable rapid recovery of critical infrastructure 

assets caused by natural disaster, attack, or 

other emergency.

Mass Care (MC) ESF #6 Prepare Sites for 

Temporary Housing 

Sites

Conducts site preparations for the placement 

of temporary housing (mobile or modular 

homes).

MC ESF #6 Department of 

Housing and Urban 

Development, 

Federal Operations 

Support

MC ESF #6 Temporary Roofing 

PRT

Coordinates for the distribution of temporary 

roofing options.

MC ESF #6 Temporary Housing 

(Haul and Install)

Conducts hauling, installation, and recovery of 

manufactured housing units or other readily 

fabricated dwellings; performs environmental 

assessment; and performs staging area 

operation and site restoration.

MC ESF #6 Temporary Housing 

(Site Design)

Provides design, site development, and 

construction, including installation of utilities at 

manufactured housing unit group sites.

MC ESF #6 Temporary 

Housing—

COTR/Technical 

Monitor Support to 

FEMA IA-TAC—

Postdeclaration

Provides planning support, assists in IA-TAC 

orders, and provides continued contract 

administration and management support.

MC ESF #6 Temporary Housing 

Team

Provides a wide range of temporary housing 

assistance, in coordination with FEMA, to fill 

the needs of survivors. One type of assistance 

is technical assistance to FEMA through the 

review of plans and specifications of group 

mobile home and manufactured housing unit

sites, and coordination of environmental 

compliance; provides plans, specifications, and 

construction-management activities associated 

with providing emergency temporary housing.
Response Federal Interagency Operational Plan 

D.1-23

Core Capability ESF Support Capability Description

MC ESF #6 Temporary Roofing 

Team

Assists local, state, tribal, territorial, and insular 

area requests for support in coordination with 

FEMA, providing temporary Blue Plastic Roofs 

to residences to prevent additional damage 

after a windstorm. The capabilities extend from 

Technical Expertise and Assistance through 

complete management of a Temporary Roofing 

Mission, including the scoping, procurement, 

and installation of temporary roofing repairs.

MC ESF #6 Field Deployment Supports activities including shelter, feeding, 

donations and volunteer management, 

warehousing, nonhazardous disaster debris 

removal for access and functional needs 

populations, tarps under the approved USACE 

program, chainsaw work, call centers, 

volunteer base camp, needs assessment, and 

long-term recovery committees.

MC, Planning (P) ESF #6 Temporary Housing Conducts emergency planning and/or 

assessment of potential sites for housing.

MC, P ESF #6 Temporary 

Housing— COTR 

and/or Technical 

Monitor Support to 

FEMA IA-TAC

Provides pre-event planning, assists in 

preparing task orders, and contracts 

administration support.

MC, P ESF #6 Mass Care 

Planning Support 

Personnel

Provides personnel to assist with planning and 

reporting in support of mass care activities. 

MC, PS ESF #6 Temporary Roofing 

PRT

Implements the Advanced Contracting Initiative 

or other contracting processes to provide 

temporary roofing.

Mass Search and 

Rescue (MS)

ESF #9 National Activation 

(Pre-

/Post-declaration)

Provides air and ground lifesaving SAR 

capability, apart from those operations in which 

USCG has SAR responsibilities in the National 

SAR Plan.

MS ESF #9 NPS ESF #9,

Department of the 

Interior Force 

Protection—FEMA 

US&R Task Forces 

(Federal 

Operations 

Support)

Provides field SAR teams and personnel in 

support of SAR operations.

MS ESF #9 NPS ESF #9,

Department of the 

Interior-NPS Single 

Boat & Operator 

Support (Federal 

Operations 

Support)

Provides motorized boats for SAR operations.
Response Federal Interagency Operational Plan 

D.1-24

Core Capability ESF Support Capability Description

MS ESF #9 SAR—Boating 

Crews

Provides boating crews to navigate flood 

waters in support of SAR operations.

MS ESF #9 DoD ESF #9, 

Rotary Wing Lift 

(Medium) for SAR 

(Federal 

Operations 

Support/Direct 

Federal 

Assistance/Technic

al Assistance)

Provides SAR operation support with mediumlift rotary wing aircraft.

MS ESF #9 US&R Response 

System

Capabilities include reconnaissance to assess 

damage and needs; assessment and shut-off 

of utilities to houses and buildings; physical 

SAR operations in damaged and collapsed 

structures; hazardous materials surveys and 

evaluations; structural and hazard evaluations 

of buildings; operations in known or suspected 

weapons of mass destruction (WMD) events; 

emergency medical care for entrapped 

casualties, task force personnel, and search 

canines; stabilization of damaged structures, 

including shoring and cribbing operations.

MS ESF #5 Contract Security 

Officers

Provides security officer support.

MS ESF #9 US&R Support to 

ESF #9

Provides US&R structural specialist advance 

strike team to accompany the FEMA US&R 

IST Engineering Cell.

MS ESF #9 US&R Support to 

ESF #9

Provides structural specialist and equipment to 

coordinate and integrate SAR resources.

Operational 

Communications 

(OC)

ESF #2 25-User 

Communications 

Package (Fixed 

Site Teams)

Provides voice, data, and video 

communications support at fixed locations for 

persons who provide coordination of initial 

assessment teams and other first responders. 

Capability for Internet reach-back.

OC ESF #2 75-User 

Communications 

Package

Provides voice, data, and video 

communications support at fixed locations for 

persons who provide coordination of initial 

assessment teams and other first responders. 

Capability for Internet reach-back.

OC ESF #2 Communications 

Support to First 

Responders

Dedicates users with mobile voice and data 

communications for initial entry assessment 

and coordination of initial response.

OC ESF #2 Domestic 

Emergency Support 

Team

Interagency subject matter experts who 

support the FBI On-scene Commander.
Response Federal Interagency Operational Plan 

D.1-25

Core Capability ESF Support Capability Description

OC ESF #2 Project Roll Call Conducts assessment of the impact to public 

safety and the Emergency Alert System in the 

affected area and identify all surviving and nonworking systems. The Federal 

Communications Commission will analyze 

radio spectrum management and integrate and 

correlated spectrum analysis results with radio 

license data and coordinate with IMAT and 

DEC Division.

OC ESF #2 Spectrum 

Management and 

Coordination

Coordinates with Project Roll Call, provides 

radio frequency spectrum analysis, 

investigates and resolves interference issues, 

provides frequency coordination for first 

responders, and provides special temporary 

authorizations and waivers to assist in 

interoperability and mutual aid issues.

OC ESF #2 MERS Provides rapid augmentation of communication 

capabilities in disaster areas.

OC ESF #2 Office of 

Cybersecurity and 

Communications

24/7 government/industry watch assists in 

initiation, coordination, restoration, and 

reconstitution of national security or emergency 

preparedness telecommunications services or 

facilities under all conditions of crisis or 

emergency; vulnerability assessments (e.g., 

satellite vulnerability, interconnection sites); 

liaison support to ESF #2 response functions; 

Telecommunications Service Priority: 

establishes system of priorities for 

provision/restoration of communication circuits 

to ensure connectivity for national 

security/emergency personnel users; 

Government Emergency Telecommunications 

Service/Wireless Priority Services: provide 

prioritized queuing for users on the public 

switched telephone network to support 

communications during periods of severe 

network congestion

OC ESF #2 DHS--Office of 

Cybersecurity and 

Communications 

— Regional 

Coordination 

Program

Office of Emergency Communications 

Regional Coordinator (RC) in Region with 

federally-declared disaster may be deployed to 

support the Office of Cybersecurity and 

Communications (support disaster emergency 

communications response efforts at the JFO, 

RRCC, and EOC in coordination with local,

state, tribal, territorial, insular area, and 

Federal representatives.

OC ESF #2 Regional 

Coordination 

Program

May be deployed to support disaster 

emergency communications response efforts.
Response Federal Interagency Operational Plan 

D.1-26

Core Capability ESF Support Capability Description

OC ESF #5 Deployable Tactical 

Operations 

Systems

Provides operations with initial operating 

facilities and emergency communications to 

support command and control.

OC ESF #2 Transportable 

Communications 

Central

Mobile communications teams to support first 

responders/damage assessments. Specifically, 

satellite phones, VHF, HF, UHS, LOS radios, 

800 MHz Circuit, Non-secure/secure radio 

capability, non-secure data, voice over Internet 

protocol.

OC ESF #2 Radio Starter 

System

Telecommunications requirement and 

personnel.

Operational 

Coordination 

(OCD)

ESF #5

FCOs

Cadre is trained and credentialed to response 

as Type I, II, and III leaders for operational 

response to Presidential 

Declaration/Emergency operations and 

national and regional level exercises. Provide 

support to state government officials in 

coordination with all Federal agency response 

capabilities.

OCD ESF #5 FEMA Operations 

Center

A continuously operating entity of DHS that is 

responsible for monitoring emergency 

operations and promulgating notification of 

changes to Continuity of Government 

Condition status.

OCD ESF #5 NOC Working in concert with NOC elements NOC 

Watch, National Watch Center/NRCC, NICC, 

Intelligence Watch and Warning, and NOC 

Planning Element, serves as the principal 

operations center for DHS and provides 

situational awareness and a common operating 

picture for the entire Federal Government and 

for local, state, tribal, territorial, and insular 

area governments, as appropriate, in the event 

of a natural disaster, act of terrorism, or other 

disaster. The NOC ensures that critical 

terrorism and disaster-related information 

reaches government decision makers.

OCD ESF #5 IMAT Rapid response teams to support initial 

establishment of unified command and provide 

situational awareness.

OCD ESF #5 Mobile 

Communications 

Office Vehicle

Provides workstations and conference space 

for 20–25 people. Operations and 

communication center. Reception, kitchen, and 

restroom facilities. Self-contained generators. 

Telephones and computers with voice and data 

switch. Local and wide area networks. Video 

teleconferencing. HF/VHF/UHF radios with 

telephone interface.
Response Federal Interagency Operational Plan 

D.1-27

Core Capability ESF Support Capability Description

OCD ESF #5 National IMAT Coordinates and integrates inter-jurisdictional 

response in support of the affected state(s) or 

U.S. territory(s). National IMATs provide initial 

situational awareness for Federal decision 

makers, and support the initial establishment of 

a unified command. IMATs provide multidisciplinary needs of emergency management 

and may include members from the interagency community.

OCD ESF #5 NRCC Coordinates Federal response efforts at the 

National level by maintaining connectivity with 

FEMA RRCCs, Federal departments and 

agencies, Federal Executive Boards, Federal 

operations and coordination centers, nonprofit 

organizations; and private sector businesses. 

The NRCC provides situational awareness that 

is crucial to determining the levels and types of 

Federal support that may be required and 

assist decision makers at all levels of 

government.

OCD ESF #5 Regional IMAT Supports the establishment of a unified 

command and provides situational awareness 

for Federal and state decision makers crucial 

to determining the level and type of immediate 

Federal support that may be required.

OCD ESF #5 Industrial Control 

System-Cyber 

Emergency 

Response Team

Provides onsite incident response, free of 

charge, to organizations that require immediate 

investigation and resolution in the event of a 

cyber incident. The Industrial Control SystemCyber Emergency Response Team is able to 

provide mitigation strategies and assist asset 

owners/operators in restoring service, and 

provide recommendations for improving overall 

network and control systems security.

OCD ESF #5 Deployable 

Operations Group

Develops and strengthens incident 

management capabilities.

OCD ESF #5 USACE Team and 

Assistant Team 

Leaders

Deploys to JFO, RRCC and NRCC to shape 

USACE missions and support in coordination 

with FEMA and other departments and 

agencies.

OCD ESF #5 Coast Guard IMAT Available to deploy anywhere within the Coast 

Guard area of responsibility or in support of an 

interagency request (e.g., Olympics or other 

National Special Security Events [NSSE]).

OP ESF #13 National Response 

Team

Assists in the investigation of significant 

explosives and fire incidents.
Response Federal Interagency Operational Plan 

D.1-28

Core Capability ESF Support Capability Description

OP ESF #13 Border Patrol 

Search, Trauma, 

and Rescue Team

Deploys to areas of concern and provides 

assistance to those in distress. Responds to 

emergency medical, trauma management, and 

national incident response as appropriate.

OP ESF #13 Border Patrol 

Tactical Unit

Mobile training teams able to support 

counterterrorism, counter narcotics, National 

Security nexus, direct enforcement, special 

reconnaissance, and border assessments.

OP ESF #13 Force Protection for 

SAR Personnel

Armed Federal Officers and Agents trained to 

support SAR techniques, concepts, and 

supporting skills.

OP ESF #13 Force Protection 

Non- US&R

Armed Federal Officers and Agents trained to 

perform Force Protection and Security duties.

OP ESF #13 Law Enforcement 

SAR Canine Team

Law Enforcement officers with trained canines 

are able to support SAR tracking and trailing 

techniques.

OP ESF #13 National Special 

Response Team 

Mobile Response 

Team

Supports DHS/FEMA during response 

operations and NSSEs.

OP ESF #13 National Canine 

Program

Detects concealed humans, various illegal 

controlled substances and contraband 

concealed within vehicles rapidly with less 

inconvenience to the general public.

OP ESF #13 National Special 

Response Team

Specialized response team trained and 

tactically equipped for long, rapid deployment 

to emergency and/or unusual law enforcement 

situations, requiring special tactics and 

techniques beyond the reasonable operational 

capabilities of U.S. Customs and Border 

Protection officers at land, air, and sea Points 

of Entry.

OP ESF #13 Horse Patrol Units Provides mobile law enforcement response to 

threats in remote locations and the ability to 

patrol most remote areas that are inaccessible 

to vehicles.

OP ESF #13 Border 

Enforcement 

Security Task 

Force (BEST)

BEST takes an all-threats approach to borderrelated crime. These threats include narcotics 

smuggling, financial crime, human trafficking, 

illegal import/export, bulk cash smuggling, the 

violation of intellectual property rights, and 

identification and benefit fraud, as well as state 

and local, and foreign crimes that are 

committed by TCOs. BEST targets these 

organizations from all perspectives, utilizing the 

expertise, authority, and the full-range of 

capabilities of its partner departments and 

agencies.
Response Federal Interagency Operational Plan 

D.1-29

Core Capability ESF Support Capability Description

OP ESF #13 Canine—Explosive 

Detector Dog Team

Conducts searches for a variety of explosive 

materials on or near building exteriors, parking 

lots, office areas, vehicles, materials, packages 

and persons in and around Federal facilities.

Provide mobile and effective capabilities for the 

protection of life/property through the provision 

of a strong, visible, and psychological 

deterrence against criminal and terrorist 

threats. Provide immediate and specialized 

response to bomb threats/unattended 

packages or other dangerous items.

OP ESF #13 Federal Protective 

Service Crisis 

Response Team

Provides support to manage crowd control, 

perimeter security, patrol, protection, and 

similar missions.

OP ESF #13 Contract Security 

Officers

Provides physical security support.

OP ESF #13 Crisis Negotiation 

Teams

Crisis Negotiation Teams are trained to assist 

Special Response Teams and Disturbance 

Control Teams (DCTs) in a response to a 

disturbance, riot, or other security incident.

OP ESF #13 Immigration and 

Customs 

Enforcement (ICE) 

Special Response 

Teams and DCTs

ICE Special Response Teams and DCTs are 

specially trained and equipped to provide 

support for disturbances, riots, tactical events, 

and other security incidents in support of

ESF #13/surge requirements.

OP ESF #13 Document and 

Benefit Fraud Task 

Force

The Document and Benefit Fraud Task Force 

combines a variety of law enforcement tools 

and authorities to achieve focused, high-impact 

criminal prosecutions and financial seizures.

Task Force investigations relate to immigration

benefit fraud, other fraud schemes, identity 

theft schemes, and document fraud.

OP ESF #13 High Intensity Drug 

Trafficking Area 

(HIDTA)

HIDTA personnel have access to HIDTA’s 

intelligence and investigative support centers 

which help identify new targets and trends, 

develop threat assessments, de-confliction, 

and manage cases.

OP ESF #13 Polygraph 

Operations

Conducts criminal polygraph response on short 

notice.

OP ESF #13 Rapid Response 

Teams

Self-contained, rapid deployment groups with 

tactical, basic medical and communications 

assets. Used to secure ICE facilities, assist 

DHS/ICE personnel, prepare impacted area for 

the arrival of additional equipment and 

personnel, and perform ESF #13 missions.
Response Federal Interagency Operational Plan 

D.1-30

Core Capability ESF Support Capability Description

OP ESF #13 Undercover 

Operations Unit

Capable of providing human resources in 

support of HSI investigations such as trained 

and certified operatives, identification of special 

agents and task force officers with unique or 

specialized skill sets (e.g., foreign language, 

industry experience, professional 

certifications), as well as covert assets (e.g., 

physical storefronts/warehouses, proprietary 

businesses, commercial Web sites, vehicles, 

vessels, aircraft).

OP ESF #13 Law Enforcement 

Strike Team—Field 

Operations

Provides law enforcement surge support.

OP ESF #13 Regional Activation 

(Pre-/Postdeclaration) ESF #9

Activation of the organization to support RRCC 

operations.

OP ESF #13 Federal Air Marshal 

Service (FAMS)

Ability to rapidly deploy Federal Law 

Enforcement Officers (FLEO) worldwide with 

minimal notification. Critical Incident Response 

teams offer organization-wide support services 

in response to any critical incident such as an 

employee suicide, shooting, or other line of 

duty exposure to traumatic events. FAMS 

maintains robust cadres of FLEOs who are 

trained and certified EMTs capable of 

deploying world-wide with minimal notification. 

International Air Marshal Program conducts 

training, education, outreach, and liaison 

efforts that encourage development/maturity of 

foreign air marshal programs.

OP ESF #13 FBI Special Agents Federal law enforcement and law enforcement 

management of law enforcement response 

operations.

OP ESF #13 FBI Electronic 

Technicians

Supports FBI communications under multiple 

platforms.

OP ESF #13 Joint Vulnerability 

Assessment Team

Conducts security vulnerability assessments 

on U.S. commercial airport critical 

infrastructure. The team identifies security 

vulnerabilities, analyzes data, and provides 

recommended countermeasures to mitigate 

vulnerabilities.

OP ESF #13 Man-portable Air 

Defense Systems 

(MANPADS)

Vulnerability 

Assessment Team

Conducts MANPADS Vulnerability 

Assessments at high risk U.S. commercial 

airports, provides assistance with MANPADS 

mitigation plans for all U.S. airports and 

provides MANPADS awareness training to first 

responders. The team also conducts 

MANPADS assessments and training at 

foreign airports upon the request of a host 

nation.
Response Federal Interagency Operational Plan 

D.1-31

Core Capability ESF Support Capability Description

OP ESF #13 National 

Deployment Force

Rapid response teams of Transportation 

Security Officers and Behavioral Detection 

Officers who are deployable as needed; fully 

trained Transportation Security Officers and 

Behavioral Detection Officers who provide 

DHS/Transportation Security Administration 

with a force capable of augmenting surges in 

passenger and baggage screening operations 

in a timely and effective manner; provide 

screening support for seasonal demands, 

special security events, and other 

circumstance requiring greater number of 

personnel than is normally available to a 

Federal Security Director.

OP ESF #13 National Explosives 

Detection Canine 

Team

Transportation Security Administration-certified 

National Explosives Detection Canine Teams 

search narrow- and wide-body aircraft, 

terminals, luggage, vehicles, freight, mass 

transit rail and buses, and maritime vessels.

National Explosives Detection Canine Team is 

currently training 48 Passenger Screening 

Canine Teams, as well as procuring 42 

Passenger Screening Canine Teams.

OP ESF #13 Office of Law 

Enforcement/FAMS 

Federal Air Marshal 

Team, Deployment

Conducts transportation-security related law 

enforcement functions in support of evacuation 

operations or surge requirements.

OP ESF #13 Transportation 

Security Advanced 

Team and 

Transportation 

Security Support 

Team

Rapid deployment and ability to support 

Federal Security Director’s operations within 24 

hours; screening of passengers and their 

baggage for prohibited items before entry into 

the sterile areas of U.S. airports.

OP ESF #13 Visible Intermodal 

Prevention and 

Response Program

Supplementation of existing security resources; 

provide deterrent presence and prevention 

capabilities, and introduce element of 

unpredictability to disrupt potential terrorist 

planning activities. Operations are planned 

using a risk-based methodology that considers 

threats, vulnerabilities, and consequences that 

is applied in partnership with local 

transportation security and law enforcement 

stakeholders.

OP ESF #13 Maritime Law 

Enforcement

Provides security forces for rescue, recovery, 

and evacuation operations.

P ESF #5 Mobile Response 

Team

National rapid deployment asset which 

provides additional operational capabilities of 

U.S. Customs and Border Protection 

Officers/Agents at and between land, air, 

insular, and littoral Points of Entry and borders.
Response Federal Interagency Operational Plan 

D.1-32

Core Capability ESF Support Capability Description

P ESF #5 Response Planning Assists in response planning and operations 

with state natural resource and environmental 

offices, performs survey work for temporary 

housing plans to identify staging area that 

mitigate impacts on possible archeological 

sites, and ensures threatened and endangered

species or ecosystems are not negatively 

impacted.

P ESF #5 Joint Mitigation and 

Individual Public 

Assistance 

Preliminary 

Damage 

Assessment Teams

Collects damage information to determine 

program eligibility for disaster declarations. The 

team supports local law enforcement and acts 

as the lead Federal Agency along with local, 

state, tribal, territorial, insular area, and/or 

private entities in the affected disaster areas.

Other responsibilities include: coordinate with 

local, state, tribal, territorial, insular area, 

and/or private officials; provide initial reports on 

the extent of impact; make initial contacts with 

impacted communities; direct media and 

individual inquiries to the appropriate support 

entity.

P ESF #5 Geospatial Support 

Team

Provides geospatial products for emergency 

incidents, special security events, and facility 

security assessments. Products are used for 

situational awareness and planning in the 

infrastructure protection mission area.

P ESF #5 NICC Watch/steady-state: maintains/shares ongoing 

operational and situational awareness of the 

Nation’s infrastructure assets. When an 

incident occurs: the Critical Infrastructure Crisis 

Action Team component of the NICC becomes 

the Office of Infrastructure Protection’s focal 

point for incident management. It provides 

integrated situational awareness, assessment 

and analysis, decision support, operations 

management and future operations planning.

P ESF #5 Protected Critical 

Infrastructure 

Information

Validates information submitted for protection, 

disseminate it to requested recipients, and 

store it within searchable databases for other 

users. Information submitted in an emergency 

can be validated under expedited procedures. 

Protected Critical Infrastructure Information 

also oversees access on the part of users.

Public Health, 

Healthcare, and 

Emergency 

Medical Services 

(HM)

ESF #8 Applied Public 

Health Team

The primary areas of Applied Public Health 

Team activities and reporting include 

epidemiology surveillance, preventive 

(medical) services delivery (e.g., disease 

prevention, vaccinations, laboratory 

information, health information), environmental 

public health (e.g., air, water, wastes, vectors, 

food, safety, shelter).
Response Federal Interagency Operational Plan 

D.1-33

Core Capability ESF Support Capability Description

HM ESF #8 Rotary Wing 

Medical/Casualty 

Evacuation

Provides aircraft transportation for medical 

and/or personnel evacuation.

HM ESF #11 Animal Disease 

Control (USDA)

Provides personnel to ensure control against 

the spread of animal disease agents; maintain 

supervisory span of control for deployed 

veterinary personnel and assistants; and 

conduct emergency quarantine or verification 

activities that include sampling of animals or 

carcasses thereof.

HM ESF #11 APHIS National 

Plant Diagnostic 

Network and 

National Animal 

Health Laboratory

Supports animal and plant disease and pest 

response.

HM ESF #11 APHIS National 

Veterinary 

Stockpile

Provides critical countermeasures and supplies 

to address animal disease outbreaks.

HM ESF #8 Emergency 

Management 

Teams

Law enforcement officers trained in Critical 

Incident Stress Management and the 

distribution of medications during the response 

to a WMD incident.

HM ESF #8 Critical Incident 

Response Team

Provides peer-level support to U.S. Customs 

and Border Protection operational component 

personnel and aids victims involved in 

traumatic events.

HM ESF #8 Rotary Wing 

Medical Patient 

Evacuation

Supports medical patient evacuations through 

the use of rotary wing aircraft and personnel.

HM ESF #8 Temporary Medical 

Treatment Facilities

Provides temporary medical treatment facilities 

that are equivalent to those established by 

HHS.

HM ESF #8 Theater Patient 

Movement and 

Airlift

Provides aero-medical evacuation forces and 

enablers for patient movement.

HM ESF #8 Rapid Response 

Team

A partnership between the Food and Drug 

Administration and state food regulatory 

partners to conduct integrated, multiagency 

responses to all-hazards food and feed 

emergencies, and to streamline foodborne 

illness investigations.
Response Federal Interagency Operational Plan 

D.1-34

Core Capability ESF Support Capability Description

HM ESF #8 Advance Logistics 

Reception Team 

Push Package

Provides reception, staging, and onward 

movement of advance logistics and forward 

medical assets. Advance Logistics Reception 

Team package consists of one Logistics Team, 

two DMATs on alert status, two DMAT caches, 

two DMAT pharmacy caches, two DMAT field 

resupply caches, one Incident Response 

Coordination Team (IRCT) cache; two Strike 

Team kits, and four Emergency Medical 

Record kits.

HM ESF #8 Behavioral 

Healthcare

Provides mental health and substance abuse 

support services to disaster casualties, their 

families, and rescue response workers. Mental 

Health teams will conduct screening and 

assessment of community needs relevant to 

mental and behavioral conditions and the 

provision of supportive and educational 

interventions such as psychological first aid to 

incident casualties, survivors, and responders.

HM ESF #8 DMAT A nationwide medical response system that 

supplements state and local emergency 

resources during disaster or major 

emergencies.

HM ESF #8 DMORT Conducts mobility morgue operations; forensic 

examination; DNA acquisition; remains 

identification; search and recovery; scene 

documentation; medical/psychological support; 

embalming/casketing; victim identification 

center; ante mortem data collection; 

postmortem data collection; records data entry; 

database administration; personal effects 

processing; coordination of release of remains; 

provides communications equipment; safety 

officers and specialist.

HM ESF #8 DMORT—WMD Provides victim identification and mortuary 

services in support of a WMD incident.

HM ESF #8 Disaster Portable 

Morgue Unit Team

The Disaster Portable Morgue Unit contains a 

complete morgue, with designated 

workstations and prepackaged supplies.

HM ESF #8 Emergency 

Prescription 

Assistance and 

Medical Equipment 

Replacement 

Program

Provides pharmaceutical supplies, limited 

durable medical equipment and personnel 

sufficient to administer the Emergency 

Prescription Assistance Program.
Response Federal Interagency Operational Plan 

D.1-35

Core Capability ESF Support Capability Description

HM ESF #8 Environmental 

Health—Hazard 

Identification and 

Control Measures

Conducts evaluations of environmental 

conditions and impacts on human health, and 

where possible, work to initiative public health 

interventions and control measures to lessen 

impacts in the affected area. Areas of 

consideration include potable water and 

ground water issues; wastewater and human 

waste disposal; sanitation for emergency 

shelter operations; toxin abatement; and vector

control.

HM ESF #8 Victim Information 

Center

Supports the collection of victim information 

and conducts death notifications.

HM ESF #8 Federal Medical 

Stations

Modular and rapidly deployable to provide a 

platform for the care of displaced persons who 

have non-acute, health-related needs that 

cannot be met in a shelter for the general 

population during an incident. The stations 

come in either 50-bed or 250-bed configuration 

and are stocked with sufficient supplies to care 

for patients for a minimum of 3 days, 

depending on configuration.

HM ESF #8 Food and Product 

Safety Inspection

Addresses immediate and short-term issues 

that impact whether food, drugs, biological, and 

medical devices that have been impacted by 

the incident are appropriate for use.

HM ESF #8 Federal Operations 

Support

Personnel to serve as SMEs for the purpose of 

public health assessments, support to access 

and functional needs populations, and other 

entities as needed.

HM ESF #8 Technical 

Assistance

Provides technical assistance and scientific 

expertise for the development of necessary 

health actions/precautions for the public health 

response. Specifically, resource coordination; 

food safety and inspections; and environmental 

health.

HM ESF #8 IRCT Based upon Incident Command System 

doctrine, Ops/Logs/Plans construct

HM ESF #8 International 

Medical/Surgical 

Response Team

The International Medical/Surgical Response 

Team is equipped and trained to provide 

surgical care in and outside the continental 

United States.

HM ESF #8 Medical Care and 

Support

Provides medical care for sheltered 

populations; mobile medical teams with gobags; medical equipment and supplies; deploy 

the Strategic National Stockpile; deploy assets 

from the Department of Veterans Affairs (VA) 

and DoD in support of intermediate medical 

operations and resupply; blood availability 

monitoring, supply, and distribution.
Response Federal Interagency Operational Plan 

D.1-36

Core Capability ESF Support Capability Description

HM ESF #8 Mental Health 

Teams

Provides mental health and substance abuse 

support services to disaster casualties, their 

families, and rescue response workers. Mental 

Health teams will conduct screening and 

assessment of community needs relevant to 

mental and behavioral conditions and the 

provision of supportive and educational 

interventions such as psychological first aid to 

incident casualties, survivors, and responders.

HM ESF #8 Mortuary 

Operations 

Assistance (NonNDMS)

Provides assistance in performing victim 

identification and mortuary services in support 

of state/local medical examiners. Actions may 

include the establishment of temporary morgue 

facilities; collecting and managing antemortem 

and postmortem data to support victim 

identification in accordance with forensic 

standards; and processing and preparing the 

deceased for their return to next-of-kin or 

alternate caretaker.

HM ESF #8 NDMS, Patient 

Movement

Provides medical evacuation support of 

seriously ill or injured patients from casualty 

collection staging areas. Specifically, 

transportation assets (airlift, rotary wing 

medevac/lift support, and ground), medical 

regulation assistance and patient tracking 

support; en-route medical care; medical 

personnel movement; medical logistics 

resupply; patient reception operations; and 

Federal coordination centers.

HM ESF #8 DOC/National IST The primary areas of DOC/National IST 

activities and reporting include continual event 

needs assessment, support and direction for 

incoming response assets, coordination of 

deployed field assets, onsite incident 

management, and response asset health and 

safety.

HM ESF #8 NDMS (includes 

DMAT, National 

Veterinary 

Response Team, 

DMORT)

NDMS capabilities include primary and acute 

care, mass causalities triage, initial 

resuscitation and stabilization, advanced life 

support, and preparing the sick or injured for 

evacuation; veterinary medical services for 

service and companion animals; mortuary 

assistance to recover, identify, and process 

deceased casualties; mass casualty 

decontamination; medical triage following 

chemical, biological, nuclear and radiological 

events.
Response Federal Interagency Operational Plan 

D.1-37

Core Capability ESF Support Capability Description

HM ESF #8 U.S. Public Health 

Service

Provides personnel to augment and assist 

local, state, tribal, territorial, and insular area 

health authorities to mitigate immediate or 

short-term negative health impacts from the 

disaster.

HM ESF #8 Regional ISTs The primary areas of Regional IST activities 

and reporting include rapid event needs 

assessment; support and direction for incoming 

response assets; liaison with local, state, tribal, 

territorial, and insular area officials; onsite 

incident management; and response asset 

health and safety.

HM ESF #8 Strategic National 

Stockpile

A repository of antibiotics, chemical antidotes, 

antitoxins, vaccines, antiviral drugs and other 

lifesaving medical materiel designed to 

supplement and resupply state and local public 

health agencies in the event of an emergency.

HM ESF #8 U.S. Public Health 

Service 

Commissioned 

Corps TeamsRapid Deployment 

Force

Conducts community outreach and 

assessments, among other functions.

HM ESF #8 Veterinary Medical 

Support (NonNDMS)

Deploys veterinary teams to support ESF #6 

and ESF #11 authorities to evaluate, make 

recommendations, and provide assistance to 

temporary shelters and existing veterinary 

clinical care facilities; assist ESF #11 in 

veterinary medical assistance for ameliorating 

animal disease and care for research animals; 

deploy veterinary public health surveillance 

teams to rapidly determine and report event 

related mobility, mortality, and environmental 

exposures of service and companion animals 

to the local incident command, and 

recommend treatment and mitigation; assist 

ESF #11 to protect the health of livestock, 

companion animals, and service and 

assistance animals by ensuring the safety of 

the manufacture and distribution of foods and 

drugs given to animals used for human food 

production, as well as companion animals.

HM ESF #8 Emergency 

Management 

Group

Operates from the Secretary of Health and 

Human Services’ Operations Center and 

coordinates the overall national ESF #8 

response for the HHS Assistant Secretary for 

Preparedness and Response.
Response Federal Interagency Operational Plan 

D.1-38

Core Capability ESF Support Capability Description

HM ESF #8 Services Access 

Team

The primary areas of Services Access Team 

activities and reporting include needs 

assessment, plan development/cultural 

sensitivity, advocating/connecting, clinical care 

coordination, continuity/transition management, 

psychosocial management, reintegration, and 

confidentiality assurance.

Public Information 

and Warning 

(PIW)

ESF #15 Media Assessment 

Team

Assists in local, state, tribal, territorial, and 

insular area media-viability assessments.

PIW ESF #15 Integrated Public 

Alert and Warning 

System

Integrated set of services and capabilities that 

enable local, state, and Federal authorities to 

provide alerts and warnings.

PIW ESF #15 Personal Localized 

Alerting Network

Allows mobile devices to receive 

geographically-targeted messages alerting 

them to imminent threats.

PIW ESF #15 USCG Public 

Affairs- SMEs

Supports the RRCC or JFO and/or others to 

provide technical advice on USCG mission 

activities.

P ESF #5 Local Government 

Liaison

Supports the Federal team and provide 

assistance to local governments in planning for 

response and recovery mission execution.

PS ESF #7 MCC Plans, coordinates, schedules, and tracks 

transport of resources (supplies, equipment, 

teams and personnel) necessary for support to 

incident operations.

PS ESF #5 Logistics PRT Provides event-specific planning to include 

resource tracking, receiving, warehouse 

management, issuing, equipment operations 

and maintenance, and property accountability 

of USACE and FEMA resources in support of 

Federal operations.

PS ESF #5 Deployable Tactical 

Operations System

Provides operations with initial operating 

facilities and emergency communications to 

support command and control.

PS ESF #5 Recovery Field 

Office Operations

Funding to lease space for Recovery Field 

Offices.

PS ESF #7 National 

Commodity Team

Provides commodities such as bottled water 

and packaged ice in the aftermath of disasters 

to the state and local governments for 

distribution to the casualties. The distribution of 

these items to the public is a local 

responsibility in coordination with the state, and 

is a labor intensive operation. To help support 

the local effort we offer the planning guidance 

as well as technical assistance.
Response Federal Interagency Operational Plan 

D.1-39

Core Capability ESF Support Capability Description

PS ESF #7 Logistics PRT 

support to FEMA 

logistics

Supports the Federal team and provide 

assistance to local governments in planning for 

response and recovery mission execution.

PS ESF #7 International 

Coordination 

Support Annex, 

International 

Assistance System 

Support

Provides policy, operational, and logistical 

support for the integration of foreign assistance 

into domestic response operations.

PS ESF #7 Acquire Federal 

Operational Staging 

Area

Establishes a Federal Operational Staging 

Area to support forward distribution of 

supplies/equipment within an affected area.

PS ESF #7 Acquire 

Mobilization Center

Provides a Mobilization Center to support 

forward distribution of supplies/equipment to 

affected area.

PS ESF #6 Communications 

Cache Support, 

Shelter Items

Provides available resources (e.g., cots, 

blankets, sleeping bags) for shelters.

PS ESF #7 Federal Teams 

Staging Facility

Provides a location for the placement of 

Federal Staging Facilities.

PS ESF #7 Fuel Distribution 

Points—Ground 

Vehicle

Provides support for the conduct of retail fuel 

distribution operations at different points.

PS ESF #7 Fuel Distribution 

Points—Military 

Rotary Wing 

Aircraft

Provides support for retail fuel supply 

operations at airfields or other locations 

through the use of military rotary wing aircraft.

PS ESF #7 ISB The location for the forward distribution of 

supplies and/or equipment.

SA ESF #5 Aerial Imagery Provides aerial imagery to include still 

photography, downloadable video, streaming 

video, in-text flight imagery and other 

information as needed.

SA ESF #5 Full Motion Video 

Capability

Provides full-motion video for incident 

awareness and assessment.

SA ESF #5 Hurricane Liaison 

Team

Provides immediate and critical storm 

information to government agency decision 

makers at all levels to help them prepare for 

their response operations, which may include 

evacuations, sheltering, and mobilizing 

equipment.
Response Federal Interagency Operational Plan 

D.1-40

Core Capability ESF Support Capability Description

SA ESF #5 National Watch 

Center

National teams of specialized equipment and 

personnel, capable of deployment.

Deployments are tailored to meet specific 

emergency or special event response 

requirements. The FEMA National Watch 

Center includes the following capabilities: 

satellite phones; Washington Area Warning 

and Alert System, Critical Infrastructure 

Warning Information Network, High Frequency 

to communicate with EOCs, non-secured 

phones and video-teleconferencing; secure 

phones and secure video teleconferencing.

SA ESF #5 NOC Working in concert with NOC elements NOC 

Watch, National Watch Center/NRCC, NICC, 

Intelligence Watch and Warning, and NOC 

Planning Element, serves as the principal 

operations center for DHS and provides 

situational awareness and a common operating 

picture for the entire Federal Government and 

for local, state, tribal, territorial, and insular 

area governments, as appropriate, in the event 

of a natural disaster, act of terrorism, or other 

disaster. The NOC ensures that critical 

terrorism and disaster-related information 

reaches government decision makers.

SA ESF #5 Geospatial 

Intelligence US&R 

Task Forces

Support

Provides geospatial intelligence support for 

US&R operations.

SA ESF #5 JFO Geospatial 

Intelligence 

Analytical Support

Provides geospatial intelligence support to the 

JFO Planning Section.

SA ESF #5 National Geospatial 

Intelligence Agency 

(NGA) ESF #5,

Regional 

Geospatial 

Intelligence 

Analytical Support 

(Federal 

Operations 

Support)

Provides geospatial intelligence support to the 

RRCC.
Response Federal Interagency Operational Plan 

D.1-41

Core Capability ESF Support Capability Description

SA ESF #5 NGA ESF #5, 

Rapid

Needs Assessment 

Geospatial 

Intelligence 

Analytical Support 

(Federal 

Operations 

Support)

Provides geospatial intelligence support for the 

FEMA Regional Rapid Needs Assessment 

Team.

SA ESF #5 DHS Office of 

Cyber and 

Infrastructure 

Analysis— Incident 

Risk Analysis Cell

Production of analytical products such an 

Infrastructure Impact Assessment, Office of 

Infrastructure Protection Note, or an In 

Response to Your Question to address 

requests for information/requests for analysis 

directed from the White House, Secretary, and 

other DHS senior leadership.

SA ESF #5 NWS ESF #5, 

Deploy NWS 

Meteorological and 

Hydrological Onsite Expertise 

(Federal 

Operations 

Support)

Meteorologist for meteorological and 

hydrological on-site expertise, coordination, 

and analysis.

SA ESF #5 Remote 

Sensing/GIS PRT

Deploys the remote sensing/GIS resources to 

include advising, assessing, and coordinating 

remote sensing/GIS needs to include mapping, 

modeling, or imagery.

EH ESF #5 CBRN Response 

Enterprise

Provides enhanced lifesaving 

(decontamination, emergency medical and 

technical search and rescue) support as well 

as command and control, CBRN assessment, 

surgical, security, engineering, logistics, 

transportation, aviation lift, and both ground 

and air evacuation.

EH ESF #11 Conservators Assists with records recovery and stabilization 

of vital records.

EH ESF #11 Museum 

Emergency 

Response Team

Supports the protection of natural and cultural 

resources and historic properties.

OP ESF #13 National Fugitive 

Operations 

Program-Fugitive 

Operations Teams

Highest priority is placed on cases involving 

aliens who pose a threat to national security 

and community safety, including members of 

transnational street gangs, child sex offenders, 

and aliens with prior convictions for violent 

crimes.
Response Federal Interagency Operational Plan 

D.1-42

Core Capability ESF Support Capability Description

EH, OP ESF #10 Chemical Facility 

Anti- terrorism 

Standards (CFATS) 

Inspection Teams

The Chemical Security Inspectors are a 

compliance enforcement team primarily 

responsible for the inspection and enforcement 

of the CFATS program. Chemical Security 

Inspectors provide outreach and compliance 

assistance to the regulated community and key 

stakeholders and, when required, support the 

Protective Security Advisors during 

emergencies and exercises by providing 

CFATS subject matter expertise.

OP ESF #13 Operation Shield 

Teams

Law Enforcement functions (e.g., covert 

penetration tests at entry control points; 

explosive detection sweeps of the perimeter 

using canine teams; performing visible 

deterrent activities; conducting law 

enforcement reporting as required) Conducts 

approximately two Operation Shield missions 

per week, per region.

IS, OP ESF #13 Protective Security 

Advisors

Establishes relationships with local, state, 

tribal, territorial, insular area, and private sector 

critical infrastructure protection partners, 

coordinate training and assistance, support 

incident management, assist security planning 

for special events and NSSEs, facilitate 

communication between the private sector and 

DHS, and conduct vulnerability and security 

assessments on the Nation’s most critical 

infrastructure.

IS ESF #3 Temporary 

Emergency Power 

Team

USACE has the capability to provide local and 

state officials broad support for their unmet 

temporary emergency power needs. This 

support ranges from technical 

expertise/assistance through complete 

management of an emergency power mission 

including the procurement, installation and 

operation of generators.

MS ESF #9 Helicopter 

Interdiction Tactical 

Squadron

Coast Guard Airborne Use of Force-Counter 

Drug. Helicopter Interdiction Tactical 

Squadron’s deployment force package consists 

of a MH-65C helicopter, two AUF-CD qualified 

pilots, one embarked Coast Guard Precision 

Marksman, an M240B machine gun area fire 

weapon, and either an M110 or M107 precision 

fire weapon.

This package is specifically designed to be 

used from a flight deck equipped Coast Guard 

cutter with embarked helicopter maintenance 

team and helicopter support kit.
Response Federal Interagency Operational Plan 

D.1-43

Core Capability ESF Support Capability Description

MS ESF #9 Maritime Force 

Protection Unit

Each USCG Maritime Force Protection Unit 

provides the Patrol Commander, weapons 

operators, reaction vessel and screening 

vessel capabilities for each mission. The Patrol 

Commander has Tactical Command of escort 

surface vessels conducting the mission. The 

escort vessels enforce the Naval Vessel 

Protective Zone by determining temper and 

intent of other vessels in the vicinity of the 

transit route.

EH, OP ESF #13 Maritime Security 

Response Team

Ready assault force able to conduct shortnotice maritime response unilaterally or as part 

of an interagency task force. Capable of 

interdicting, boarding, verifying threats, and

when required, engaging in offensive 

operations against hostile threats. Capable of 

tactical operations up to using modified Level B 

or C PPE during an entry with hazardous 

materials. The Maritime Security Response 

Team can pre- stage personnel and equipment 

for threats or actual events and actual releases 

in a hostile or potentially hostile environment.

OP ESF #13 Port Security Unit Each Port Security Unit can operate as either a 

law enforcement or non-law enforcement unit

with well-armed Transportable Port Security 

Boats and shore side security teams. In 

addition to its operational and team missions, 

the units also provide: Maritime Law 

Enforcement, Logistics Coordination, Medical 

Services, and Humanitarian relief..

IS ESF #3 Regional Dive 

Lockers: East,

West, and Pacific

USCG capability for conducting diving 

operations to a max depth of 190 feet. 

Provides search, inspection, repair, recovery, 

and underwater ship husbandry.

IS, EH ESF #10 Salvage 

Engineering 

Response Team

The USCG Salvage Engineering Response 

Team is comprised of naval architects trained 

to conduct technical analysis in the areas of 

vessel stability and structural integrity. The 

Salvage Engineering Response Team provides 

assistance to Coast Guard Field Units by 

performing numerous technical evaluations 

including: Assessment and analysis of intact 

and damaged stability; Hull stress and 

strength; Grounding and freeing forces; 

Prediction of oil/hazardous substance outflow; 

and Expertise on passenger vessel 

construction, fire protection, and safety.
Response Federal Interagency Operational Plan 

D.1-44

Core Capability ESF Support Capability Description

OP ESF #13 Tactical Law 

Enforcement Team 

& Law Enforcement 

Detachments

USCG Tactical Law Enforcement Teams

provide specialized Law Enforcement 

Detachments (LEDET) with advanced boarding 

capabilities. LEDETs provide maritime security 

response capability.

SA ESF #8 National 

Biosurveillance 

integration Center

Enables the identification, characterization, 

localization, tracking, and dissemination or 

alerts on the occasion of biological incidents of 

national concern.

SA ESF #8 BioWatch System Provides detection of various biological agents 

within many of the Nation’s largest 

metropolitan areas. These detection reports 

are called BioWatch Actionable Results (BA) 

and are shared with the NOC.

PS ESF #7 Fuel Operations 

Bulk Fuel

The JFO initiates a 48- to 72-hour warning 

order via eTasker to activate the contractor. 

After this, an eTasker is initiated, requesting 

the commodity by type and quantity in gallons. 

This eTasker is sent to FEMA-LRCChief@dhs.gov, who determines the proper 

supply chain manager and forwards the 

request. The manager validates the request 

through the Logistics Management Center 

Chief and creates an order in the Trading 

Partner Management module of Logistic 

Supply Chain Management System for the 

States requirement. The Trading Partner 

Management order(s) is emailed to the DLA’s 

Joint Logistics Operations Center at 

cat.hq@dla.mil.

PS ESF #7 Responder Support 

Camp Operations

A large base camp can be established to 

support 301 to 2,000 disaster responders. The 

Region sends an eTasker to the FEMA-LRCChief@dhs.gov, who will in turn submit the 

eTasker to Logistics Operations Division 

Support Services Branch for sourcing action 

via RMG partner, FEMA Office of the Chief 

Procurement Officer. FEMA Office of the Chief 

Procurement Officer sends a Task Order 

Proposal Request to contractors for bids.

Contractors have 24 hours to respond. 

Coordination occurs between the following 

entities: Regional Administrators, FCO(s), 

Office of the Chief Procurement Officer, 

Logistics/Resource Support Section.
Response Federal Interagency Operational Plan 

D.1-45

Core Capability ESF Support Capability Description

OCD ESF #5 DHS Surge 

Capacity Force

The Surge Capacity Force is organized into 

four tiers. Tier 1: Disaster Reservists with 

FEMA credentials; Tier 2: Permanent Full-time 

Employees with FEMA credentials; Tier 3: 

Non- FEMA Credentialed, but NIMS-trained 

Permanent Full- or Part-time Federal 

Employees, and Tier 4: Non-FEMA 

Credentialed and Untrained Permanent Full- or 

Part-time Federal Employees.
Response Federal Interagency Operational Plan 

D.1-46

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Response Federal Interagency Operational Plan 

E-1 

Annex E: Operational Communications 

Purpose 

The purpose of this annex is to describe the delivery of the Operational Communications core 

capability within the Response mission area. The Operational Communications core capability 

ensures the capacity for timely communications in support of security, situational awareness, and 

operations by any and all means available, among and between affected communities in the impact 

area and all response forces. 

The Operational Communications (OC) critical tasks are as follows: 

 OC-Critical Task-1: Ensure the capacity to communicate with both the emergency response 

community and the affected populations and establish interoperable voice and data 

communications between local, state, tribal, territorial, insular area, and Federal first responders. 

 OC-Critical Task-2: Reestablish sufficient communications infrastructure within the affected 

areas to support ongoing life-sustaining activities, meet basic human needs, and transition to 

recovery. 

Operational communications is the concept of operations for delivery and employment of the Federal 

Operational Communications core capability consistent with the missions identified in the Federal 

Interagency Operational Plan (FIOP). Operational communications includes the identification of 

Federal support organizations, capabilities, and teams with internal interoperable voice, video, and 

data systems and networks essential for effective disaster response and recovery operations. 

Operational communications is the integrated interagency emergency communications means and 

modes used to support disaster response and recovery operations. The foundation of the Operational 

Communications core capability is the timely, dynamic, and reliable movement and processing of 

disaster information in a form that meets the needs of emergency management decision makers at all 

levels of government. 

Interagency operational communications involves the integration of multiple local, state, tribal, 

territorial, insular area, and Federal agencies, each with their own systems and capabilities enacting a 

comprehensive strategy for deployment of interoperable systems. 

The Operational Communications core capability provides mechanisms to enable the Operational 

Coordination core capability to receive information for decision-making and direct, organize, and 

provide strategic direction to response operations. It provides a means for exchanging information 

internally to response operations and externally with the public.

Situation 

When communications are degraded or unavailable, then transmission of coordination, situational 

reporting, alerts, warnings, and public awareness information must be accomplished via organized 

Federal augmentation or restoration of operational communications in the affected area through 

access to primary, backup, and if possible, tertiary communications equipment and processes that are 

robust, reliable, and interoperable. 

The delivery of operational communications through unity of effort is the most important principle 

driving response and recovery communications support operations. Horizontal and vertical 

information sharing ensures that all stakeholders are integrated and in sync with the needs of the 

state, tribal, territorial, and insular area jurisdictions. 
Response Federal Interagency Operational Plan 

E-2 

Assumptions 

General assumptions for the Response FIOP are identified in the base plan. 

Mission 

The Federal Interagency partners will ensure the capacity to communicate with the emergency 

response community and the affected populations; establish interoperable voice and data 

communications between local, state, tribal, territorial, insular area, and Federal responders; and 

reestablish sufficient communications infrastructure within the affected areas 

Execution 

Operational communications provides rapidly deployed capabilities to provide mission-essential 

communications connectivity in order to ensure critical information exchanges occur between key 

response and recovery emergency management entities. 

Operational communications enables emergency managers to maintain unity of coordination and 

continuity of operations at critical times and places throughout catastrophic incident areas. Properly 

employed communications systems are the key to effective situational awareness, information 

management, and successful disaster support. 

Mission planning and communications management are critical to successful execution of Federal 

interagency response and recovery support. Federal communications service providers must develop 

procedures that support interoperable, compatible, and interconnected field communications 

networks. 

Local, state, tribal, territorial, insular area, and Federal operations plans should address the plan for 

employment of operational communications systems. Deployed systems and capabilities should be 

National Incident Management System (NIMS) compliant and meet the following mission support 

priorities: 

 Support to survivors in communities as defined by the authority having jurisdiction 

 Augmentation of local first responder communications 

 Support to local, state, tribal, territorial, and insular area governments 

 Federal response and recovery team communications 

 Mobile and fixed disaster facilities and field infrastructure 

 Support to state National Guard/Emergency Management Assistance Compact/mutual aid 

operations 

 Federal-to-Federal Emergency Support Function (ESF) assistance 

 Other support as deemed necessary by Federal Coordinating Officers (FCO). 

Concept of Operations 

Phase 1 

Operational communications focuses on planning, training, exercising, and assessing 

communications capabilities should an incident occur. The goal is to connect who needs to 

communicate, when they need to communicate, in a field-expedient manner. This can only be 

achieved through planning, training, exercising, and coordination at all levels of government. 
Response Federal Interagency Operational Plan 

E-3 

This is a continual process and encompasses public and private resources, plans, and procedures. 

Horizontal and vertical information sharing (pre-event) ensures that all stakeholders are integrated 

and in sync with the needs of the local, state, tribal, territorial, and insular area jurisdictions. 

Situational awareness is crucial throughout incident response and recovery, but more so prior to 

deployment by providing realistic insight of known shortfalls, deficiencies, as well as the Governor’s 

intent and priorities in the projected affected areas. 

Shared situational awareness is attained through not only a unity of effort that is developed among 

stakeholders, but also through reporting that occurs at the level of local, state, tribal, territorial, 

insular area, and Federal governmental agencies; nongovernmental organizations (NGO); industryessential service providers; other private sector partners; and individuals. 

The Federal Emergency Management Agency (FEMA), as Primary Agency for ESF #2 (Tactical), 

has primary responsibility for operational communications and integrates not only internal FEMA 

assets, but also assets owned by other ESF #2 Federal supporting Support Agency, local, state, tribal, 

territorial, insular area, and private sector communications partners to ensure a single integrated 

operational communications management structure in the field. 

Phase 2 

ESF #2 identifies opportunities where the Federal Government can support critical communications 

providers’ response efforts to restore vital communications assets and, when appropriate, facilitate 

the transfer of international technical and communications assets. 

During response operations, the FEMA Regional Administrator may establish a Communications 

Unit at the regional headquarters to serve as the focal point for coordination during the initial phases 

of the event. The Regional Response Coordination Center (RRCC) Communications Unit is led by 

the Emergency Communications Unit Leader and is structured to coordinate in both the tactical and 

commercial communications support domains. 

During incidents that impact a single state, tribe, territory, or insular area in the Region, the Regional 

Emergency Communications Coordinator (RECC) may consider deploying to the field. Field 

deployments of RECC personnel are only considered when it does not limit the RECCs ability to 

successfully coordinate and execute regional emergency communications responsibilities. Reasons 

for deploying include to: 

 Affect direct coordination with state, tribal, territorial, and insular area counterparts 

 Conduct first-hand damage assessments 

 Hone field experience while operating as a Disaster Emergency Communications (DEC) Group 

Supervisor 

 Conduct limited training of disaster workforce personnel. 

Successful execution of immediate response operations depend upon the ability of Mobile 

Emergency Response Support (MERS) detachments to provide timely, accurate, and tailored 

operational communications to Federal response teams (e.g., Incident Management Assistance Team 

[IMAT], urban search and rescue) during all Response phases. When authorized, MERS detachments 

are deployed to provide rapid response communications. Key to the ability of MERS to provide 

effective communications support is the rapid deployment and integration of MERS Coordinator(s) 

into various field organizations. Once deployed, MERS establishes initial communications to support 

key nodes in the incident area. 
Response Federal Interagency Operational Plan 

E-4 

The MERS Coordinator employs capability to augment regional resources and provide support to the 

FCO and all assets and entities under the FCO’s authority. MERS communications systems are 

integrated with other emergency responder networks to provide operational communications, 

situational awareness, and critical links that connect Initial Operating Facilities (IOF), mobile 

disaster recovery centers, Joint Field Offices (JFO), MERS Operations Centers, RRCCs, 

jurisdictional Emergency Operations Centers (EOC), and other recognized command centers. 

Operational communications and most essential information will normally flow from the incident 

level, through Federal response teams, to disaster facilities (e.g., FCOs) to regional operations and 

coordination centers, and ultimately to national-level decision makers. At the same time, decision 

makers, resource providers, and operations and coordination centers provide accurate, actionable, and 

relevant information to support incident operations using FEMA applications, systems, and networks. 

FEMA deploys other Federal department and agency communications and information technology 

capabilities to support the sustained Federal response effort. Most of the communications 

infrastructure in the incident area is owned and operated by the private sector. As such, coordination 

with these entities is a primary focus of ESF #2 (Communications Restoration) and is crucial to 

success in any response, recovery, and whole community restoration effort. 

Phase 3a 

Operational Communications transitions to the National Disaster Recovery Framework’s 

Infrastructure Systems Recovery Support Function to conduct long-term (30 days after the incident) 

activities to rebuild damaged communications infrastructure. 

Coordinating Structure 

Coordination of ESF support to the Operational Communications core capability is depicted in 

Figure E-1. Specific activities conducted by ESFs are detailed in the operational communications 

tasks below. 
Response Federal Interagency Operational Plan 

E-5 

Figure E-1: Coordination of ESF Support to Operational Communications 

The operational communications concept provides the new doctrine necessary to unify all responders 

around one common effort—the delivery of information to emergency responders and survivors of 

catastrophic disasters. The common vision creates an interconnected interagency system of 

communications capabilities across all levels of government to provide mission-critical information 

and situational awareness vital to disaster responder command and control decision making. 

Federal Emergency Management Agency 

FEMA leads and coordinates the Federal Government’s disaster response, continuity efforts, and 

restoration of information technologies and communications essential for an effective response. 

FEMA’s operational and tactical capabilities converge to provide seamless response and recovery 

connectivity throughout the designated incident area. FEMA performs operational communications 

functions to support incident response in complex environments, where knowledge of disaster 

management and emergency communications systems and networks is critical to mission success. 

Operational communications is executed through FEMA’s 10 Regions, Federal response teams (e.g.,

IMATs), and its MERS detachments. 

Department of Homeland Security Cyber Security and Communications 

As the ESF #2 Coordinator and co-Primary Agency under the National Response Framework, the 

DHS Office of Cybersecurity and Communications (CS&C) plays a critical role in supporting 

commercial private sector communications infrastructure restoration. This role supports industry 

partners with logistics coordination (e.g., access, fuel, security) in an effort to expedite commercial 

restoration efforts. CS&C performs this critical role in disasters as an integral part of FEMA’s 

operational communications management structure. 
Response Federal Interagency Operational Plan 

E-6 

Department of Homeland Security National Coordinating Center for Communications 

The National Coordinating Center (NCC) for Communications coordinates all department and 

agency communications assets in response to the event and works closely with industry to expedite 

restoration using all nationally-available assets. The NCC also provides the forum for industry to 

discuss its needs and plans with government and other industry members. The Department of 

Homeland Security (DHS) NCC coordinates with DHS CS&C to obtain appropriate staff resources 

and deploys them to meet FEMA mission requirements. The NCC, in close coordination with FEMA 

and the Support Agencies under ESF #2, can direct deployment of response and restoration personnel 

to coordinate Federal communications response and recovery in support of the state, tribe, territory, 

or insular area. 

The NCC will coordinate with the Federal Communications Commission (FCC) to provide initial 

radio-based (e.g., cellular radio, broadcast services, microwave radio, some satellite services, land 

mobile radio) frequency assessments of the affected area and assists in prioritization and location of 

available assets to assist in the reconstruction. At the same time, the FCC and the National 

Telecommunications and Information Administration (NTIA) assist in any provisioning of temporary 

licensing or other rule requirements. The reconstitution or implementation of temporary facilities for 

media services will be essential. 

Supporting Departments and Agencies 

ESF #2 works with Federal departments and agencies and industry to coordinate prioritization of 

communications requirements. FEMA and its ESF #2 partners routinely examine the lead times for 

equipment and support personnel needed for response and recovery operations. ESF #2 Primary and 

Support Agencies work with local, state, tribal, territorial, and insular area governments to ensure 

that, through their planning, training, and exercises, they understand how the communications 

infrastructure must be maintained and supplied during response and recovery operations. 

In addition, the DHS Office of Emergency Communications must advise local, state, tribal, 

territorial, and insular area governments of consequences should specific sites fail to be maintained 

operational. DHS CS&C provides communications analysis that identify critical communications 

infrastructure. During an actual response, the NCC provides data to assist the FCO with restoration 

prioritization, access coordination, security assurance, and fuel replenishment in an effort to mitigate 

communications inoperability. 

Core Capability Communications Tools 

Operational communications tools include both hardware and software command and control 

capabilities required to implement the whole community approach. Disaster support information 

systems support large-scale emergency management requirements, including situational awareness; 

logistics; search and rescue; medical; evacuation; law enforcement; and Federal team support. New 

and innovative communications systems are being used to support recovery (e.g., in-take registration) 

and disaster survivor assistance mission planning. Essential operational communications are 

composed of mobile applications, systems, and nodes delivering information and knowledge to 

emergency management decision makers at all levels of government. Key disaster support 

management information systems capabilities are provided in Table E-1. 
Response Federal Interagency Operational Plan 

E-7 

Table E-1: Communications Assets 

Application

Automated Deployment 

Database

The electronic system used to deploy FEMA personnel to disaster 

field operations, regional assignments, exercises and training. 

Tracks deployed personnel through a self-check-in and checkout 

process and provide an audit of deployed personnel by facility. 

Used to manage PFTs, COREs, Reservists, and FEMA Corps 

deployed personnel.

Crisis Information 

Management Software

Supports the standard NIMS Incident Command System (ICS) 

incident command functional and includes ICS forms and features 

tailored for specific ESFs.

Disaster Information 

Reporting System/Network 

Outage Reporting System

The Disaster Information Reporting System is a voluntary, Webbased system that communications companies, including wireless, 

wireline, broadcast, and cable providers, can use to report 

communications infrastructure status and situational awareness 

information during times of crisis. The FCC requires 

communications providers, including wireline, wireless, paging, 

cable, satellite, and Signaling System 7 service providers to 

electronically report information about significant disruptions or 

outages to their communications systems. The Network Outage 

Reporting System is the Web-based filing system through which 

required communications providers submit reports to the FCC.

Logistics Supply Chain 

Management System

Supports FEMA's mission of responding to all hazards expediently 

and efficiently by managing the Nation's end-to-end supply chain of 

disaster assets and commodities. Manages the supply chain 

process, including initial request for assets and commodities; 

orders to FEMA and partners; transportation; inventory

management at FEMA locations; and shipment and receipt by the 

state, tribe, territory, or insular area. Also provides supply chain 

management, situational awareness and in-transit visibility, 

performance management reporting, and geographic information 

system (GIS) mapping capabilities.

Radio Systems

Area Satellite 

Communications (Ku Band)

Satellite communication systems designed to service large groups 

such as a JFO, Disaster Recovery Center, or Survivor Assistance 

locations. These systems typically operate in the Ku frequency 

band and can provide voice, video, data, public Internet, and 

access to selected government networks.

National Response Network 

(Land Mobile Radio Network)

A rapidly expandable, always on, system of interconnected 

repeaters providing potential nationwide interoperable 

communications. Provides critical voice communications for FEMA 

and the emergency response community by providing a rapidly 

deployable land mobile radio network capability enabling 

communications in the field and to key command and control nodes 

nationwide. These nodes include the FEMA National Response 

Coordination Center, RRCCs, MERS detachments, FEMA Regions, 

and prospective future nodes as required.
Response Federal Interagency Operational Plan 

E-8 

Radio Systems

Gulf Coast Trunked System—

Land Mobile Radio Network 

Resources (800 MHz)

An in-place network of trunked repeaters available to support 

disaster response along the Louisiana/Mississippi coast. Caches of 

radios are maintained and accessible to each MERS detachment 

as needed.

National Cache—Land Mobile 

Radio Network Resources 

(UHF/VHF/800 MHz)

A FEMA-managed assembly of land mobile radio network and 

satellite communications systems for rapid deployment. Contained 

in two warehouse trucks with accompanying shop trailers. 

Capability was developed and outfitted to support response efforts 

when the demand for additional equipment exceeded the resources 

available within the first 24 hours of operation.

National Oceanic and 

Atmospheric Administration 

Weather Radio All-Hazards

This network of remotely operated radio transmitters operated by 

National Weather Service Weather Forecast Offices can be used to 

transmit weather and public safety messages.

Personal Satellite 

Communications

Satellite communication systems designed for a single person, 

including, but not limited to, Iridium, MSAT, and Thuraya. Provide 

access to the public switched telephone network through a satellite 

to telephone system gateway. Iridium provides Type 1 encryption.

Several enhancements have been implemented recently, such as 

real-time tracking with input into GIS mapping systems and OverThe-Horizon, Beyond-Line-of-Sight, and one-too-many broadcast 

systems.

Mobile Satellite with Satellite 

Mutual Aid Radio Talk Group

Provides one-to-many broadcast-style push-to-talk communications 

that lets government and public safety responders quickly 

communicate with each other during incidents and emergencies. 

The network can be linked locally, regionally, or nationally. In 

addition to the ability to communicate across multiple public safety 

agencies, each national Satellite Mutual Aid Radio Talk Group is 

designed to serve different public safety communities.

Team Satellite 

Communications

Satellite communications systems designed to service a small 

group (2–6 personnel) with voice and data capabilities. These 

systems are extremely easy to install and provide rapid arrival to 

communications response times.

Information Sharing Networks

Defense Information Systems 

Networks Non-Secure Internet 

Protocol Routed Network

Used to exchange sensitive but unclassified information between 

internal users as well as providing users access to the Internet. 

Composed of Internet Protocol routers owned by the Department of 

Defense (DoD).

DHS Homeland Security Data 

Network

A secure Web-based communications system that serves as the 

primary DHS nationwide information sharing and collaboration 

network for transferring classified information. Provides Secret-level 

connectivity to enhance the ability of local, state, tribal, territorial, 

and insular area partners to receive federally-generated classified 

threat information.
Response Federal Interagency Operational Plan 

E-9 

Information Sharing Networks

DHS Homeland Security 

Information Network

An unclassified, Web-based communications system that serves as 

the primary DHS nationwide information sharing and collaboration 

network. Supports interagency information exchange and enables 

all states and major urban areas to collect and disseminate nearreal-time information among communities of interest in managing 

all-hazard contingencies. Provides adequate protection for Law 

Enforcement Sensitive, Sensitive but Unclassified, and For Official 

Use Only information to be shared during an incident. All 

participants should work within this unclassified medium to 

maximize information sharing with other participants.

DHS OneNet A unified Internet Protocol platform for connecting every DHS 

location and all DHS mission areas. DHS OneNet will drive DHS 

spectrum requirements in the future. DHS OneNet supports 

existing mission-critical wireless data and voice systems to provide 

on-demand, wireless communications capabilities with appropriate 

levels of coverage, security, and reliability. OneNet infrastructure 

also supports interoperability by leveraging existing local, state, 

tribal, territorial, insular area, and Federal systems to provide DHS 

users access to improved capabilities in a cost-effective manner.

Defense Information Systems 

Agency Secure Internal 

Protocol Routed Network

A system of interconnected computer networks used by DoD and 

Department of State (DOS) to transmit classified information (up to 

and including information classified Secret) by packet switching 

over the Transmission Control Protocol/Internet Protocol protocols 

in a completely secure environment. Also provides services such 

as hypertext document access and electronic mail. Network is 

DoD's classified version of the civilian Internet and is the Secret 

component of the Defense Information Systems Network.

DisasterAWARE The Office of the Secretary of Defense Crisis Management uses a 

Web-based integrated GIS platform called DisasterAWARE for 

shared situational awareness, decision support, and information 

exchange. This platform is available to the public and private sector 

to support humanitarian assistance in the realm of disaster 

management and risk reduction. In addition, a disaster alert is 

available for mobile devices that display the DisasterAWARE active 

hazards on maps.

Messaging Systems

Emergency Notification 

System

An automated emergency notification tool which enables FEMA to 

notify personnel in an emergency situation where activation for 

disaster response is possible or anticipated.

Integrated Public Alert and 

Warning System

A multiagency emergency population warning system designed to 

provide rapid, reliable and effective communication to the public in 

case of major emergencies such as natural disasters and terrorist 

attacks.

Personal Accountability 

System

Provides a standardized method to account for and determine the 

status of DHS employees, detailees, and contractor staff who may 

be affected by a catastrophic event or emergency situation.
Response Federal Interagency Operational Plan 

E-10

Mobile Systems

Command and Control; 

Command Post; and 

Emergency Office Vehicles

Command and control and operations support vehicles that can be 

more rapidly deployed than an emergency office vehicle to an 

incident or event. Its primary purpose is to provide initial work 

space and communications capabilities for response personnel. 

Multiple departments and agencies have acquired command and 

control; command post; and emergency office vehicles and 

capabilities.

Examples include:

 FEMA MERS

 Emergency Office Vehicles

 Mini Emergency Office Vehicles

 Incident Response Vehicles

 U.S. Coast Guard Enhanced Mobile Incident Command Post

 U.S. Coast Guard Rescue-21

 FCC Roll Call

 DoD Communications Assets

 Federal Protective Services Incident Command Post

Other

Government Emergency 

Telecommunications System

Provides emergency access and priority processing in the local and 

long distance segments of the Public Switched Telephone Network. 

It is intended to be used in an emergency or crisis situation when 

the public switched telephone network is congested and the 

probability of completing a call over normal or other alternate 

telecommunication means has significantly decreased.

H.323 Video Teleconferencing H.323 is the suite of protocols for Internet Protocol-based 

videoconferencing. This establishes the standards for computers, 

equipment, and services for multimedia communication over 

packet-based networks that define how real-time audio, video and 

data information is transmitted. Connections, via an Internet 

Protocol-to-Integrated Service Digital Network gateway can provide 

the ability to videoconference with older H.320-based systems.

High Frequency Systems and 

Networks

Multiple high frequency networks provide contingency, long-range, 

and/or public-switched telephone network independent 

communications. These networks are managed by several different 

agencies and provide connectivity based on their participants.

Integrated Common Analytical 

Viewer

A Web-based geospatial analytical and situational awareness 

system consisting of imagery; government-owned and licensed 

data; and dynamic, mission-specific information integrating threats, 

weather, and situation awareness information. Imagery fused with 

data layers and information feeds provide users with a rapid, 

shared situational awareness of the cyber incident and the critical 

infrastructure or population centers affected to support coordinated 

preparedness, response, and recovery activities. Unites partners at 

the local, state, tribal, territorial, insular area, and Federal levels as 

well as other nongovernmental partners through an integrated,

geographic-shared situational understanding for information 

sharing, analysis, visualization, and dissemination.
Response Federal Interagency Operational Plan 

E-11

Other

Interoperability/Crossbanding (ACU)

ACUs (several models) can simultaneously cross-connect different 

radio networks; connect radio networks to telephone or satellite 

communications systems; and network Radio Over Internet 

Protocol/Voice Over Internet Protocol talk paths to enhance 

interoperable communications between response elements.

Satellite-based Internet 

Service (Ka Band)

Contracts providing satellite-based Internet and phone capabilities, 

including installation and removal, are currently available. These 

contracts can provide short notice (within 48 hours) installation of 

satellite capabilities providing voice and Internet to identified 

locations.

Wireless Priority Service A priority calling capability that greatly increases the probability of 

call completion during a national security and emergency 

preparedness event while using their cellular phone. To make a 

Wireless Priority System call, the user must first have the Wireless 

Priority System feature added to their cellular service. Once 

established, the caller can dial *272 plus the destination telephone 

number to place an emergency wireless call.

Operational Communications Tasks

Mission Objectives (MO) 

 OC-MO-1: Coordinate operational communications planning amongst whole community 

partners. (Supports OC-Critical Task-1) 

 OC-MO-2: Gain and maintain a shared situational awareness and understanding of the operating 

environment as it pertains to the communications infrastructure. (Supports OC-Critical Task-1) 

 OC-MO-3: Identify, alert, deploy, and adjudicate Federal communications resources to support 

responders at all levels and the affected population. (Supports OC-Critical Task-1, OC-Critical 

Task-2) 

 OC-MO-4: Integrate Federal response equipment with jurisdictional communications systems to 

facilitate interoperable communications between responders at all levels and the affected 

population. (Supports OC-Critical Task-1) 

 OC-MO-5: Reestablish sufficient communications within the affected area. (Supports OCCritical Task-2) 

Phase 1a—Normal Operations 

End State: Planning, training, and exercises have been conducted, and systems build-out has 

enhanced the abilities of responders to communicate. Coordination with public and private partners 

has resulted in increased awareness of technological and procedural gaps and the solutions required 

to achieve communications interoperability. (Supports OC-MO-1)

 Tasks by Phase, by ESF 

 All 

 Identify potential local, state, tribal, territorial, insular area, and Federal emergency 

communications requirements. 

 Identify and inventory equipment and resources needed to support response operations. 
Response Federal Interagency Operational Plan 

E-12

 Conduct essential planning functions to achieve operational coordination objectives and 

key critical tasks by conducting the following planning: 

‒ Provision of tactical communications 

‒ Coordination of commercial communications 

‒ Coordination of spectrum management 

‒ Information assurance 

‒ Establishment of external connectivity 

‒ Performance of recovery operations 

‒ Development of joint/interagency concepts. 

 Prepare local, state, tribal, territorial, insular area, and Federal responders through the 

development and use of new and existing communications doctrine, policy, regulations, 

and standard operating procedures. 

 Develop, review and distribute Federal disaster emergency communications planning 

information to Support Agencies. 

 Develop strategies for an effective program of national-level plans and capabilities to 

provide sufficient and timely support in the event of multiple events or a catastrophic 

incident. 

 Coordinate with local, state, tribal, territorial, insular area, and Federal partners to 

develop plans to achieve interoperable communications across jurisdictions and establish 

baseline disaster emergency communications requirements, standards, guidance, and 

metrics that define measures of success. 

 Establish a consensus on essential emergency communications capabilities each local, 

state, tribal, territorial, or insular area jurisdiction should strive to have in place to serve 

as a baseline for addressing capability shortfalls. 

 Identify, with DHS and other Federal departments and agencies, nationwide capabilities 

and shortfalls. 

Phase 1b—Elevated Threat 

End State: Based on preliminary information, operational communications plans are refined to 

address the operational communications needs of whole community partners. (Supports OC-MO-1) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 

Phase 1c—Credible Threat 

End State: Existing Federal communications response equipment is catalogued and readied for 

deployment. (Supports OC-MO-3) 

The Response FIOP is based upon a no-notice incident. Tasks that would be conducted for a notice 

incident are addressed in Phases 1a, 2a, 2b, or 3a, as appropriate. This includes any pre-deployment 

and/or staging of resources. There will not be any tasks listed for Phases 1b or 1c. Refer to the base 

plan for general information regarding pre-incident operations. 
Response Federal Interagency Operational Plan 

E-13

Phase 2a—Immediate Response 

End State: Preliminary damage assessments have been conducted, in coordination with public and 

private sector partners, to identify the status of communications infrastructure. Federal personnel 

have been alerted. (Supports OC-MO-2, OC-MO-3) 

 Tasks by Phase, by ESF 

 ESF #2 

 Establish incident area communications capabilities for local, state, tribal, territorial, 

insular area, and Federal entities. 

 Coordinate with states, tribes, territories, and insular areas to implement state and 

regional emergency communications plans in concert with the National Preparedness 

Goal. 

 Identify communications requirements for internal and external stakeholders. 

 Push communications capabilities forward to responders at the incident location. 

 The FEMA DEC Office will employ its tactical communications capabilities to enable 

Federal command and control; assist state offices of emergency communications; and 

support the JFO. 

 Provide connections between incident-level networks and regional/national-level systems 

to provide status updates; situational awareness; command and control; and resource 

coordination. 

 Support the operating requirements of the FCOs, their staffs, and National and Regional 

IMATs. 

 Gather information to determine where needs exist and where communications may be 

interrupted. 

 Issue mission assignments for other Federal department and agency partners for 

communication assets that cannot be supplied by FEMA. 

 Coordinate with ESF #13, as required, for escort, on-scene security, or protection of 

deployed resources. 

 ESF #3 

 Mobilize Deployable Tactical Operation Systems to support the mission execution. 

 ESF #5 

 Gather information to determine where needs exist and where communications may be 

interrupted. 

 Issue mission assignments to ESF #2 and other Federal department and agency partners 

for communication assets that cannot be supplied by FEMA. 

 ESF #13 

 Assess the need for On-scene Security, Protection, and Law Enforcement of deployed 

resources. 
Response Federal Interagency Operational Plan 

E-14

Phase 2b—Deployment 

End State: Resources and capabilities have been coordinated amongst public and private sector 

partners and deployed to the affected area to meet shortfalls. Preliminary Federal response equipment 

has been adjudicated and integrated with jurisdictional communications systems. (Supports OC-MO3, OC-MO-4)

 Tasks by Phase, by ESF 

 All 

 Coordinate with local, state, tribal, territorial, and insular area governments, NGOs, and 

private sector partners to integrate resources, increase capabilities, and meet shortfalls. 

 ESF #2 

 Deploy, install, operate, maintain, and protect telecommunications and operations assets 

in response to disasters and in support of planned special events. 

 Coordinate with appropriate departments, agencies, and industry partners to perform 

temporary restoration of local communications infrastructure. 

 Increase bandwidth and connectivity by tying into public networks as far forward as 

possible. 

 Deploy FCC and NTIA frequency managers to coordinate frequency usage, and DoD 

frequency assignments to the IOF, JFO, and elsewhere as appropriate. 

 Deploy communications resources, as directed, to support Incident Management Teams; 

command and control; emergency operations centers; mass care services; Public Health, 

Healthcare, and Emergency Medical Services; search and rescue; and public information 

and warning. 

 Establish, maintain, and operate voice, video, and data communications systems. 

 Install, operate, and maintain communications towers. 

 Integrate mobile communications devices into first responder networks. 

 Provide interoperability through the integration of disparate systems. 

 Provide fixed, mobile, and commercial communications capabilities to stakeholders. 

 Provide backup capabilities through the use of redundant communications systems. 

 Establish backhaul for local networks into national-level systems. 

 Ensure communications reach back to FEMA national and regional fixed facilities. 

 Provide tactical communications by coordinating the acquisition and delivery of tactical 

communications capabilities necessary to meet one or more responding agencies’ 

response and recovery requirements. 

 Coordinate the acquisition and delivery of commercial communications to permit access 

to services normally available to, or to enhance capabilities for, response agencies and the 

public. 

 Coordinate spectrum management by processing requests for frequency assignments, 

performing frequency de-confliction, and designating spectrum assignments based upon 

requests for resources (e.g., channels, talk groups, mutual aid interoperability). 
Response Federal Interagency Operational Plan 

E-15

 Protect systems and information in storage, processing, or transit from unauthorized 

access or modification; denial of service to unauthorized users; or the provision of service 

to authorized users. Implement measures necessary to detect, document, and counter such 

threats. 

 Aid in evaluating post-incident communications needs for restoration of the 

communications infrastructure. 

 Enhance disaster communications restoration through satellite backhaul and network 

Land Mobile Radio using Radio over Internet Protocol technologies. 

 Coordinate with ESF #4, as required. 

 Coordinate, as required, for the procurement of communications equipment and services. 

 ESF #4 

 Provide radio communications systems to support firefighters, law enforcement officers, 

and incident response operations. 

 ESF #5 

 Activate ESF #2 at the national and regional levels to provide coordination and technical 

assistance. 

 ESF #7 

 Coordinate the procurement of communications equipment and services. 

Phase 2c—Sustained Response 

End State: Sufficient communications have been reestablished within the affected area. (Supports 

OC-MO-5)

 Tasks by Phase, by ESF 

 ESF #2 

 Assess the viability of tactical (hastily formed networks) and commercial 

communications infrastructure and provide mid-to long-term restoration plans for public 

and private communications systems. 

 Introduce resources needed to repair critical infrastructure. 

 Implement required resources for short-term restoration of critical infrastructure. 

Phase 3a—Short-term Recovery 

End State: As communications systems are restored, Federal communications support resources have 

been reconstituted or demobilized, as appropriate. (Supports OC-MO-5) 

 Tasks by Phase, by ESF 

 ESF #2 

 The FEMA DEC Office will operationalize emergency communications plans established 

with states, tribes, territories, and insular areas pre-event by ensuring the integrity of first 

responder networks and a smooth transition to long-term restoration. 
Response Federal Interagency Operational Plan 

E-16

Coordinating Information 

FEMA Office of the Chief Information Officer 

FEMA Office of the Chief Information Officer’s Disaster Response Team is responsible for rapidly 

establishing full-service voice, data, and video communications for all responders working from 

JFOs and other FEMA-established locations. Upon arrival, the Disaster Response Team immediately 

provides full local area network connectivity for supported departments, agencies and NGOs working 

from these locations. Arrangements for home-agency connectivity through virtual private networking 

must be coordinated with the Disaster Response Team in advance. 

Federal Spectrum Management 

The Communications Act of 1934 grants the President authority for spectrum management for all 

Federal use (47 U.S.C. § 305). The NTIA manages the spectrum for the Federal Government. The 

rules can be found in the NTIA Manual of Regulations and Procedures for Federal Radio Frequency 

Management. The FCC manages and regulates all domestic non-Federal spectrum use (47 U.S.C. § 

301). Their rules can be found in 47 C.F.R. The DoD, in accordance with NTIA authority and policy, 

manages parts of the radio spectrum that are designated exclusively or primarily for DoD use. The 

NTIA Office of Spectrum Management is responsible for managing the Federal Government’s use of 

the radio frequency spectrum. To achieve this, the Office of Spectrum Management receives 

assistance and advice from the Inter-department Radio Advisory Committee. The Office of Spectrum 

Management carries out this responsibility by: 

 Establishing and issuing policy regarding allocations and regulations governing the Federal 

spectrum use 

 Developing plans for the peacetime and wartime use of the spectrum 

 Preparing for, participating in, and implementing the results of international radio conferences 

 Participating in all aspects of the Federal Government’s communications related emergency 

readiness activities 

 Assigning frequencies to Federal departments and agencies 

 Responding to radio frequency coordination requests from the FCC 

 Maintaining spectrum-use databases 

 Reviewing Federal departments’ and agencies’ new telecommunications systems and certifying 

that spectrum will be available 

 Providing the technical engineering expertise needed to perform specific spectrum resources 

assessments and automated computer capabilities needed to carry out these investigations 

 Participating in Federal Government telecommunications and automated information systems 

security activities. 

Non-Federal Spectrum Management 

The FCC, an independent U.S. Government agency, manages the use of non-Federal spectrum by: 

 Licensing the use of non-Federal spectrum, to include radio and television broadcast, wire, 

satellite, land mobile, and cable communications 

 Processing applications for licenses and other filings 

 Investigating complaints of harmful radio frequency interference 
Response Federal Interagency Operational Plan 

E-17

 Granting special temporary authority or waiving rules in an emergency to assist with emergency 

response and restoration. 

Information Systems Protection 

Effective response to a significant cyber incident relies on interagency coordination and each 

individual agency’s level of engagement relies, in part, on the nature and impact of the incident. 

Departments and agencies may be involved in the cyber incident response effort, to include DHS, 

DoD, and the Department of Justice.29 They receive additional support from the Department of 

Commerce, Department of Energy, DOS, Department of Transportation, Department of the Treasury, 

FCC, Intelligence Community, National Institute of Standards and Technology, and the Office of 

Management and Budget. Coordination of these efforts is conducted through the National 

Cybersecurity and Communications Integration Center (NCCIC). For cyber incidents that have 

significant physical cascading effects, FEMA leads the physical consequence management effort in 

accordance with the National Response Framework in cooperation with the DHS Office of 

Cybersecurity and Communications (CS&C). 

The DHS NCCIC is a 24/7, integrated cybersecurity and communications operations center, which 

works directly with Federal and state, local, tribal, and territorial governments and the private sector. 

It serves as a centralized location where the operational elements that participate in the NCCIC 

involved in cyber response activities are physically and virtually co-located. During steady-state 

operations, the NCCIC will utilize its co-located elements and outreach mechanisms to bring all 

appropriate information together and, as necessary, to support incident response. During a significant 

cyber incident, the NCCIC is responsible for coordinating and integrating information to provide 

cross-domain situational awareness and fostering collaboration and a shared situational awareness 

among collaborating cybersecurity centers. Co-located elements includes: NCC for 

Telecommunications; U.S. Emergency Readiness Team; and Industrial Control Systems Cyber 

Emergency Response Team. 

Communications Security 

The primary responsibility for secure communications rests with users who require that capability, 

and those users must plan to bring appropriate devices with them when they deploy. Secure landline 

voice capabilities, such as secure terminal equipment devices, are available in some state, tribal, 

territorial, insular area, and Federal facilities; secure cellular phones may be provided to senior 

leadership by MERS. MERS may deploy vehicles with secure voice capabilities to the state, tribal, 

territorial, or insular area EOC or to the incident area in support of FCO requirements. Secure 

communications capabilities are also available in the MERS equipment. 

Video Teleconference and Communications Requirements 

DEC Division coordinates Federal resources to provide video assets to support response operations. 

MERS uses its own organic assets, such as the Mobile Communications Office Vehicle, to provide 

shared situational awareness and to supply video capabilities, including secure video, if required, to 

leadership. 

 

29 The National Cyber Investigative Joint Task Force is a multiagency national focal point for coordinating, 

integrating, and sharing pertinent information related to cyber threat investigations, with representation from the 

Central Intelligence Agency (CIA), National Security Agency (NSA), the United States Secret Service (USSS), and 

other agencies as appropriate. Under the authority of the Attorney General, the Director of the FBI is responsible for 

the operation of the NCIJTF, but does not direct the operations of other agencies. 
Response Federal Interagency Operational Plan 

E-18

Administration and Support 

Activation, notification, deployment, and deactivation will be accomplished by the standard 

procedures of each of the responding departments and agencies. All actions in response to an incident 

will be in accordance with all laws, acts, regulations, or other legal authorities that may apply. 

The following legal agreements may be applied specifically to operational communications: 

 Emergency Management Assistance Compact will be utilized as need dictates. 

 Memoranda of Understanding will be implemented as need dictates. 

Table E-2: Operational Communications Core Capability Waivers, Exceptions, and Exemptions 

Type Description

Waiver FCC: Issue notices, orders, and approve requests for Special Temporary Authority and 

waivers providing telecommunications providers the authority to operate outside of their 

regularly established parameters during disaster response operations as well as allowing 

extension of report filing deadlines.
Response Federal Interagency Operational Plan 

Y-1 

Annex Y: List of Abbreviations 

AABB American Association of Blood Banks 

AAR After Action Report 

AFO Area Field Office 

AL Authority/Legal 

AOP Advanced Operational Plan 

APHIS Animal and Plant Health Inspection Service 

ASPA Assistant Secretary for Public Affairs (Department of Health and Human Services) 

ASPECT Airborne Spectral Photometric Environmental Collection Technology 

ATF Bureau of Alcohol, Tobacco, Firearms, and Explosives 

BEST Border Enforcement Security Task Force 

C.F.R. Code of Federal Regulations 

C3 Command, Control, and Communication 

CA Congressional Affairs 

CBRN Chemical, Biological, Radiological, or Nuclear 

CBRNE Chemical, Biological, Radiological, Nuclear, or High-yield Explosive 

CDC Centers for Disease Control and Prevention 

CDP Community Distribution Point 

CFATS Chemical Facility Anti-terrorism Standards 

CIR Critical Information Requirement 

CMAS Commercial Mobile Alert System 

COP Common Operational Picture 

COTR Contracting Officer’s Technical Representative 

CS&C Office of Cybersecurity and Communications 

DCO Defense Coordinating Officer 

DCE Defense Coordinating Element 

DEC Disaster Emergency Communications 

DHS Department of Homeland Security 

DLA Defense Logistics Agency 

DMAT Disaster Medical Assistance Team 

DMORT Disaster Mortuary Operational Response Team 

DOC Department of Commerce 

DoD Department of Defense 
Response Federal Interagency Operational Plan 

Y-2 

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 

D-SNAP Disaster Supplemental Nutrition Assistance Program 

EA External Affairs 

EAO External Affairs Officer 

EAS Emergency Alert System 

EH Environmental Response/Health and Safety 

EMAC Emergency Management Assistance Compact 

EOC Emergency Operations Center 

EPA Environmental Protection Agency 

ESF Emergency Support Function 

F.R. Federal Register 

FAA Federal Aviation Administration 

FAMS Federal Air Marshal Service 

FBI Federal Bureau of Investigation 

FCC Federal Communications Commission 

FCO Federal Coordinating Officer 

FEMA Federal Emergency Management Agency 

FIOP Federal Interagency Operational Plan 

FM Fatality Management Services 

GeoCONOPS Geospatial Concept of Operations 

GIS Geographic Information System 

GSA General Services Administration 

Hazus Hazards United States 

Hazus-MH Hazards United States-Multi-hazard 

HHS Department of Health and Human Services 

HIDTA High Intensity Drug Trafficking Area 

HM Public Health, Healthcare, and Emergency Medical Services 

HSI Homeland Security Investigations 

HSIN Homeland Security Information Network 
Response Federal Interagency Operational Plan 

Y-3 

HUD Department of Housing and Urban Development 

IAA Interagency Agreement 

IAP Incident Action Plan

IA-TAC Individual Assistance Technical Assistance Contract 

iCAV Integrated Common Analytical Viewer 

ICE Immigration and Customs Enforcement 

ICP Information Collection Plan 

ICS Incident Command System 

IED Improvised Explosive Device 

IGA Intergovernmental Affairs 

IMAAC Interagency Modeling and Atmospheric Assessment Center 

IMAT Incident Management Assistance Team 

IOF Initial Operating Facility 

IPAWS Integrated Public Alert and Warning System 

IRCT Incident Response Coordination Team 

IRSCC Interagency Remote Sensing Coordination Cell 

IS Infrastructure Systems 

ISB Incident Support Base 

IST Incident Support Team 

JFO Joint Field Office 

JIC Joint Information Center 

JOC Joint Operations Center 

LEP Limited English Proficiency 

LMD Logistics Management Directorate 

MAC Mapping and Analysis Center 

MANPADS Man-portable Air Defense Systems 

MC Mass Care 

MCC Movement Coordination Center 

MERS Mobile Emergency Response Support 

MO Mission Objective 

MOA Memorandum of Agreement 

MOU Memorandum of Understanding 

MS Mass Search and Rescue 

NCC National Coordinating Center 
Response Federal Interagency Operational Plan 

Y-4 

NCCIC National Cybersecurity and Communications Integration Center 

NCH Natural and Cultural Resources and Historic Properties 

NCIJTF National Cyber Investigative Joint Task Force 

NDMS National Disaster Medical System 

NEFRLS National Emergency Family Registry and Locator System 

NGA National Geospatial Intelligence Agency 

NGO Nongovernmental Organization 

NICC National Infrastructure Coordinating Center 

NICCL National Incident Communications Conference Line 

NIMS National Incident Management System 

NLC National Logistics Coordinator 

NLS National Logistics System 

NOAA National Oceanic and Atmospheric Administration 

NOC National Operations Center 

NPS National Park Service 

NRC Nuclear Regulatory Commission 

NRCC National Response Coordination Center 

NRF National Response Framework 

NSSE National Special Security Event 

NTAS National Terrorism Advisory System 

NTIA National Telecommunications and Information Administration 

NWS National Weather Service 

NVRT NVRT National Veterinary Response Team 

OC Operational Communications 

OCIA Office of Cyber and Infrastructure Analysis 

OCD Operational Coordination 

OFDA Office of Foreign Disaster Assistance 

OP On-scene Security, Protection, and Law Enforcement 

OPA Office of Public Affairs 

OSC On-scene Coordinator 

OSHA Occupational Safety and Health Administration 

P Planning 

P/I Process and Implementation 

PI Public Information and Warning 
Response Federal Interagency Operational Plan 

Y-5 

PICCL Private Sector Incident Communications Conference Line 

PIW Public Information and Warning 

POD Point of Distribution 

PPD Presidential Policy Directive 

PPE Personal Protective Equipment 

PRT Planning and Response Team 

PS Public and Private Sector and Resources 

PSMA Pre-scripted Mission Assignment 

R Resources 

RECC Regional Emergency Communications Coordinator 

RETCO Regional Emergency Transportation Coordinator 

RGC Regional Geospatial Coordinator 

RMG Resource Management Group 

RRCC Regional Response Coordination Center 

RSF Recovery Support Function 

RSS Resources Support Section 

S/A Situational Awareness 

S/PW Social/Public Will 

SA Situational Assessment 

SAM Site Access and Mobility 

SAR Search and Rescue 

SBA Small Business Administration 

SICCL State Incident Communications Conference Line 

SIOC Strategic Information and Operations Center 

SME Subject Matter Expert 

SNRA Strategic National Risk Assessment 

SSA Sector-Specific Agency 

THIRA Threat and Hazard Identification and Risk Assessment 

THU Temporary Housing Unit 

TMCG Transportation and Management Coordination Group 

TR Critical Transportation 

U.S.C. U.S. Code 

UCG Unified Coordination Group 

US&R Urban Search and Rescue 
Response Federal Interagency Operational Plan 

Y-6 

USACE U.S. Army Corps of Engineers 

USAID U.S. Agency for International Development 

USCG U.S. Coast Guard 

USDA U.S. Department of Agriculture 

USGS U.S. Geological Survey 

VA Department of Veterans Affairs 

VAL Voluntary Agency Liaisons 

VOAD Voluntary Organizations Active in a Disaster 

WMD Weapons of Mass Destruction 
Response Federal Interagency Operational Plan 

Z-1 

Annex Z: Distribution 

Distribution, transmission, and destruction of the Response Federal Interagency Operational Plan 

(FIOP) will be in accordance with the Department of Homeland Security (DHS) Management 

Directive 11042.1, which is publically available. Questions pertaining to the distribution, 

transmission, or destruction of this FIOP or for information on how to obtain a copy of DHS 

Management Directive 11042.1 should be submitted in writing to the Federal Emergency 

Management Agency’s National Planning Branch at response-planning@fema.dhs.gov.
Response Federal Interagency Operational Plan 

Z-2 

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