FINAL DRAFT 

State and Urban Area 

Homeland Security Strategy 

Guidance on Aligning Strategies with the 

National Preparedness Goal 

July 22, 2005
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Table of Contents 

I. INTRODUCTION......................................................................................................... 2

II. CONTEXT FOR THE STRATEGY UPDATE ........................................................ 2

A. The National Preparedness Goal................................................................................ 3 

B. A Framework for National Preparedness................................................................... 3 

C. The National Preparedness System............................................................................ 5 

III. THE PATH FORWARD ........................................................................................... 6

IV. MINIMUM REQUIREMENTS FOR UPDATING STRATEGIES...................... 7

V. INCORPORATING NATIONAL PRIORITIES...................................................... 8

A. Expanded Regional Collaboration ............................................................................. 8 

B. Implement the National Incident Management System (NIMS) and National 

Response Plan (NRP).................................................................................................... 10 

C. Implement the Interim National Infrastructure Protection Plan (NIPP) .................. 11 

D. Strengthen Information Sharing and Collaboration Capabilities............................. 14 

E. Strengthen Interoperable Communications Capabilities.......................................... 15 

F. Strengthen CBRNE Detection, Response, and Decontamination Capabilities ........ 17 

G. Strengthen Medical Surge and Mass Prophylaxis Capabilities ............................... 18 

IV. SUBMISSION OF UPDATED STATE AND URBAN AREA STRATEGIES .. 20

V. SUMMARY OF REQUIREMENTS........................................................................ 21

VI. GENERAL SUPPORT............................................................................................. 22

APPENDIX A: STATE AND URBAN AREA HOMELAND SECURITY 

STRATEGY FORMAT AND SUBMISSION............................................................ A-1
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STATE AND URBAN AREA HOMELAND SECURITY STRATEGY 

Guidance on Aligning Strategies with the National Preparedness Goal 

July 22, 2005 

I. INTRODUCTION 

On March 31, 2005, the Department of Homeland Security (DHS) issued the Interim 

National Preparedness Goal (the Goal) and accompanying National Preparedness 

Guidance (NPG). The Goal establishes a vision for a National Preparedness System, and 

the NPG provided an introduction to several of the key building blocks for that system, 

including the National Planning Scenarios, Universal Task List (UTL), Target 

Capabilities List (TCL), and seven National Priorities. This document provides followon guidance for use by States and Urban Areas in placing their preparedness efforts 

within the context of this new doctrine and updating their existing Homeland Security 

Strategies to ensure that they support the Goal and reflect the seven National Priorities. 

Updated strategies must be submitted to the Office for Domestic Preparedness (ODP) by 

September 30, 2005, and will both guide and focus future State and Urban Area 

preparedness activities, budgets, and priorities. The appendix provides information for 

the format and submission of the strategies. 

The purpose of Homeland Security Strategies is to: 

• Provide a blueprint for comprehensive, enterprise-wide planning for homeland 

security efforts; 

• Provide a strategic plan for the use of related Federal, State, local, and private 

resources within the State and/or Urban Area before, during, and after threatened 

or actual domestic terrorist attacks, major disasters, and other emergencies; 

II. CONTEXT FOR THE STRATEGY UPDATE 

Ours is a nation that must manage risk. The threats we face – terrorism, disasters, and 

major emergencies – respect neither jurisdictional nor geographic boundaries. We cannot 

prepare for every eventuality; thus, we must strategically allocate and apply limited 

resources. We must adopt a common approach and establish a shared commitment 

among Federal, State, local, and tribal governments and the private sector in our efforts to 

strengthen the preparedness of the United States. Only through such an approach can we 

build effective capabilities to prevent, protect against, respond to, and recover from 

terrorist attacks, major disasters, and other emergencies, and achieve the greatest return 

on our national investment in homeland security. 

Understanding our risks and capabilities, and applying our resources effectively to 

manage those risks is critical to our national preparedness. We must think about 
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managing preparedness in the way we manage operations—in an integrated manner. 

Applying the principles of unified command and adopting a systems-based approach to 

preparedness will enable us to build capabilities and programs that will achieve more 

success in combination with a shared commitment than individual, disparate efforts. In 

short, these efforts will help us realize the Goal. 

A. The National Preparedness Goal 

The Goal represents a significant evolution in the way we approach preparedness and 

homeland security. The Goal presents a collective vision for national preparedness, and 

establishes National Priorities that will help guide the realization of that vision. The 

vision set forth by the Goal encompasses the full spectrum of activities necessary to 

address a broad range of threats and hazards, including terrorism. 

The vision of the National Preparedness Goal is: 

To engage Federal, State, local, and tribal entities, their private and non-

 governmental partners, and the general public to achieve and sustain risk-based 

 target levels of capability to prevent, protect against, respond to, and recover 

 from major events in order to minimize the impact on lives, property, and the 

 economy.

B. A Framework for National Preparedness 

The Goal provides a common framework for a systems-based approach to build, sustain 

and improve national preparedness for a broad range of threats and hazards. The Goal 

and other source documents define the mission areas of this framework as follows:

Prevent: Actions to avoid an incident or to intervene or stop an incident from 

occurring. Prevention involves actions taken to protect lives and property. It 

involves applying intelligence and other information to a range of activities that 

may include such countermeasures as deterrence operations; heightened 

inspections; improved surveillance and security operations; investigations to 

determine the full nature and source of the threat; public health and agricultural 

surveillance and testing processes; immunizations, isolation, or quarantine; and, 

as appropriate, specific law enforcement operations aimed at deterring, 

preempting, interdicting, or disrupting illegal activity and apprehending potential 

perpetrators and bringing them to justice (Source—NIMS, March 2004). 

Protect: Actions to reduce the vulnerability of critical infrastructure or key 

resources in order to deter, mitigate, or neutralize terrorist attacks, major disasters, 

and other emergencies (Source—HSPD 7, December 2003). It requires 

coordinated action on the part of federal, state, and local governments; the private 

sector; and concerned citizens across the country. Protection also includes: 

continuity of government and operations planning; awareness elevation and 

understanding of threats and vulnerabilities to their critical facilities, systems, and 
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functions; identification and promotion of effective sector-specific protection 

practices and methodologies; and expansion of voluntary security-related 

information sharing among private entities within the sector, as well as between 

government and private entities. (Source – The National Strategy For The 

Physical Protection of Critical Infrastructures and Key Assets, February 2003) 

Respond: Activities that address the short-term, direct effects of an incident. 

Response includes immediate actions to save lives, protect property, and meet 

basic human needs. Response also includes the execution of emergency 

operations plans and of mitigation activities designed to limit the loss of life, 

personal injury, property damage, and other unfavorable outcomes. As indicated 

by the situation, response activities include applying intelligence and other 

information to lessen the effects or consequences of an incident; increased 

security operations; continuing investigations into nature and source of the threat; 

ongoing public health and agricultural surveillance and testing processes; 

immunizations, isolation, or quarantine; and specific law enforcement operations 

aimed at preempting, interdicting, or disrupting illegal activity, and apprehending 

actual perpetrators and bringing them to justice (Source—NIMS, March 2004). 

Recover: Activities that include the development, coordination, and execution of 

service- and site-restoration plans; the reconstitution of government operations 

and services; individual, private- sector, nongovernmental, and public-assistance 

programs to provide housing and to promote restoration; long-term care and 

treatment of affected persons; additional measures for social, political, 

environmental, and economic restoration; evaluation of the incident to identify 

lessons learned; post-incident reporting; and development of initiatives to mitigate 

the effects of future incidents (Source—NIMS, March 2004). 

At the core, success depends upon robust and adaptive collaboration—between the public 

and private sector, among different levels of government, among multiple jurisdictions, 

and among departments and agencies within a single jurisdiction. Collaboration 

encompasses a wide range of activities (e.g., joint planning, training, operations) aimed at 

coordinating the capabilities and resources of various entities (agencies, organizations, 

and individuals from many tiers of public and private sectors) for the common purpose of 

preventing, protecting against, responding to, and recovering from intentional as well as 

natural threats to people or property. As such a critical element, collaboration can thus be 

viewed as the foundation upon which success in all four mission areas depends. 

Each mission area includes a collection of capabilities that require the integration of 

multiple agencies, disciplines, processes, and procedures. For example, the prevention 

mission area includes the capability of intelligence fusion and analysis. This capability 

requires the interaction of law enforcement investigations, public health surveillance, 

suspicious activity reports from the public, and other discipline-specific activities. 
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Integration is needed across mission areas. For example, information learned in 

intelligence fusion and analysis should inform critical infrastructure protection efforts so 

that protection strategies fit the threats. 

This common framework provides an overarching structure which can guide the 

establishment and enhancement of homeland security preparedness organizations, 

programs and processes. While individual components within the framework may 

change over time, the framework is robust and should not change. 

C. The National Preparedness System 

Implementing a common, shared approach to achieving National preparedness requires 

the Nation to align its programs and efforts in support of the Goal. Alignment can best be 

achieved through the application of a systems-based approach, utilizing capabilitiesbased planning as a common, all-hazard, major events planning process. This will 

support the establishment of a true National Preparedness System, which will provide a 

mechanism for measuring preparedness and informing future preparedness investments. 

The National Preparedness System is a system of systems. As stated in the National 

Preparedness Goal, “a system is a combination of facilities, equipment, personnel, 

procedures, and communications integrated into a common organizational structure to 

achieve a mission or outcome.” Many processes, programs, and capabilities already in 

place within State, local, tribal, and private sector homeland security programs and across 

disciplines will support the National Preparedness System. The emerging National 

Preparedness System provides a way to enhance these existing resources by networking 

them together more effectively. 

The National Preparedness System provides a means for the Nation to answer three 

fundamental questions: “How prepared do we need to be?”, “How prepared are we?”, 

and “How do we prioritize efforts to close the gap?” The system helps enable all levels 

of government to collaborate seamlessly in order to identify critical gaps and 

deficiencies, develop strategies to address those gaps and deficiencies, track and report on 

progress toward resolution, and aggregate this information to better understand our level 

of preparedness nationally. The system also helps enable leaders at all levels to allocate 

resources systematically to close capability gaps, thereby enhancing the effectiveness of 

preparedness efforts. 

The implications of moving to an integrated and adaptive National Preparedness System 

are significant. This shift will require organizational and operational change across 

agencies, disciplines and jurisdictions – and across State lines. Mutual aid agreements, 

inter-organizational linkages, information sharing, and collaboration become critical 

elements of the new homeland security landscape. 

In facing these changes, however, we must recognize that we are not starting over. 

Rather, we are building on the effective systems, processes, and capabilities we already 

have in place. Aligning these existing programs, processes, and organizational structures 
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to a common framework will not happen overnight, but will be an incremental change 

over time. 

In employing a systems-based approach to National Preparedness, no single component 

part can be the sole responsibility of one individual or group. We have organized and 

formed many of the core coordinating structures and working groups, however, progress 

can still be made in how these coordinating structures and working groups operate. 

Achieving full integration and interconnectedness between the public and private sector, 

among different levels of government, among multiple jurisdictions, and among 

departments and agencies within a single jurisdiction requires robust collaboration. 

Initial progress has been made in our collaboration and coordination efforts to date, but 

further progress can and must be made to support the Goal. 

III. THE PATH FORWARD 

Over the next year, the initial focus will be on significantly improving or enhancing 

capabilities supporting the seven National Priorities listed in the NPG, as building blocks 

for the National Preparedness System. These seven priorities reflect a limited number of 

the cross-cutting initiatives and critical capabilities that should drive near-term planning 

and resource allocation efforts. The National Priorities are intended to guide the Nation’s 

preparedness efforts to meet its most urgent needs, and fall into two categories: (1) 

overarching priorities that contribute to the development of multiple capabilities, and (2) 

capability-specific priorities that build selected capabilities for which the nation has the 

greatest need. 

National Priorities 

Overarching Priorities 

• Implement the National Incident Management System and National Response Plan 

• Expanded Regional Collaboration 

• Implement the Interim National Infrastructure Protection Plan 

Capability-Specific Priorities 

• Strengthen Information Sharing and Collaboration capabilities 

• Strengthen Interoperable Communications capabilities 

• Strengthen CBRNE Detection, Response, and Decontamination capabilities 

• Strengthen Medical Surge and Mass Prophylaxis capabilities 

The Homeland Security Strategy update process provides a unique opportunity for States 

and Urban Areas to align their existing strategies with these seven National Priorities. It 

is not a requirement to provide a new goal for each of the seven National Priorities. 

It is necessary, however, to address all four mission areas and reflect the prescribed 

National Priorities within the updated strategies. This can be accomplished through 
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goal statements and supporting objectives. States and Urban Areas have already made 

substantial progress in the strategic planning arena; this update asks them to build on that 

success. 

Updated State and Urban Area Homeland Security Strategies will then provide a context 

for performing the strategic exercise of asking “How are we organized?” and “How are 

we managing our homeland security programs?” This evaluation will enable us as a 

Nation to think about how we build our programs and capabilities within and across State 

boundaries. Over the next several months, DHS will continue to work closely with 

Federal, State, local, tribal, private sector, and non-governmental subject-matter experts 

to further refine the target capabilities list and identify the levels of capability that will 

enable the Nation to minimize the impact on lives, property, and the economy for all

scenarios. Later in 2005, States and Urban Areas will be asked to conduct an analytical 

review of their homeland security programs and their capabilities in several key areas, 

evaluate where capabilities should be strategically located in order to maximize the return 

on preparedness investments, and develop regional approaches for leveraging all 

available funding sources (Federal, State, local, and private) to build their capabilities. 

ODP will release additional guidance to support the completion of this program and 

priority capability review in late summer of 2005. The results of these reviews will 

support the application for and leveraging of Federal preparedness assistance from DHS, 

the Department of Heath and Human Services (HHS), and other Federal agencies. 

IV. MINIMUM REQUIREMENTS FOR UPDATING STRATEGIES 

Strategic planning, at its core, is a process that should guide the States and Urban Areas 

in achieving their goals and objectives. The current State and Urban Area Homeland 

Security Strategies have strong foundations that should support an ongoing process of 

review and refinement as new lessons are learned, new priorities are realized, and new 

homeland security guidance is released. With the release of the National Preparedness 

Goal and Guidance, State and Urban Areas have an opportunity to address the four core 

mission areas and reflect the National Priorities in their strategies. 

Although ODP is requiring States and Urban Areas to revisit their current strategies, the 

intent of this guidance is not to require that an entirely new strategy be written, but rather 

to tailor and update, as appropriate, existing goals and objectives to support the National 

Preparedness Goal, the seven National Priorities, local government concerns, and citizen 

preparedness efforts. If desired, States and Urban Areas may conduct a more extensive 

update or rewrite of their strategies. 

At a minimum, States and Urban Areas must ensure that their updated strategies address 

the four mission areas (prevent, protect, respond, recover) and reflect the seven National 
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Priorities1. It is important to note that it is not a requirement to provide an individual goal 

and objective for each mission area and priority; States and Urban Areas must show, 

however, how their goals and objectives align to these priorities. It is recognized that 

each State and Urban Area has unique needs and capabilities and the strategies should 

reflect these attributes. Therefore, strategies should continue to include additional goals 

and objectives that reflect specific State and Urban Area priorities. Strategies must 

address citizen preparedness, volunteer efforts,2

 and local government concerns3. It is 

also strongly encouraged that States and Urban Areas consider collaboration across 

disciplines, jurisdictions, and agencies when describing the strategies, goals, and 

objectives within the framework of the mission areas.

The current State and Urban Area Homeland Security Strategies address 2004, 2005, and 

2006, and are mostly terrorism focused. In updating their strategies this year, States and 

Urban Areas should begin the process of evolving their strategies to address not only 

terrorism, but a broad range of other threats and hazards, founded on a capabilities-based 

planning approach. In the future, States and Urban Areas will be asked to develop 

enterprise-wide homeland security strategies for 2007, 2008 and 2009 that reflect the 

necessary integration and collaboration across all mission areas and support the 

establishment of the National Preparedness System and realization of the Goal. 

V. INCORPORATING NATIONAL PRIORITIES 

The following paragraphs highlight the seven National Priorities as identified in the 

National Preparedness Goal, and provide guidance on how to apply each priority to the 

State or Urban Area homeland security strategy. 

A. Expanded Regional Collaboration 

Background of the Expanded Regional Collaboration Priority: 

Major events, especially terrorism, will invariably have cross-geographic consequences 

and impact. The expanded regional collaboration priority highlights the need for 

embracing partnership across multiple jurisdictions, regions, and States in building 

capabilities cooperatively. Successful regional collaboration allows for a multijurisdictional and multi-disciplinary approach to building capabilities for all four mission 

 

1 This does not require an update to existing objectives if those objectives already reflect the National 

Priorities. However, the alignment of those objectives to the National Priorities should be clearly 

articulated. 2 State and local governments are encouraged to consider all sources of citizen and community support 

from those responsible for the coordination of citizen education, communication, training, participation, 

and volunteer activities (e.g., Citizen Corps). 3 Local governments should be involved in the ongoing strategic planning process (e.g. development and/or 

review of the strategy) performed by States and Urban Areas and, therefore, local government concerns 

should be addressed in the strategies.
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areas, spreading costs, and sharing risk across geographic areas. This approach increases 

opportunities to create efficiency and leverage capabilities across the country. Regional 

collaboration focuses on expanding mutual aid and assistance compacts among 

contiguous State, local, and tribal entities, and their private and non-governmental 

partners, and extending the scope of those compacts to include pre-incident preparedness 

activities (i.e., planning, training, exercising). The intent is to locate capabilities 

strategically to maximize coverage of the U.S. population and the Nation’s high priority 

critical infrastructure and key resources. The Goal does not mandate that State and local 

governments adopt a regional governmental structure, but it does require that all levels of 

government embrace a regional approach to building capabilities. 

Regional Collaboration: A Multi-Jurisdictional and 

Multi-Disciplinary Approach* 

*Note: This graphic is for illustrative purposes only – it is not representative of all disciplines. 

How to apply the Expanded Regional Collaboration Priority to the 2005 State and Urban 

Area Homeland Security Strategy Update: 

Preventing, protecting against, responding to, and recovering from major events (as 

represented by the National Planning Scenarios) will require that capabilities be drawn 

from a wide area. The area from which resources will be drawn may or may not expand 

beyond the current area served by existing regions. In updating their homeland security 

strategies, States and Urban Areas are asked to examine current regional collaboration 

efforts and explore new approaches to developing regional capabilities. The strategy 

should provide a narrative description of how the State or Urban Area currently uses and 

plans to use mutual aid to prevent, protect against, respond to, and recover from major 

events. The strategy should present the States’ or Urban Areas’ vision for increasing 

Emergency 

Management

Law 

Enforcement

Public Health 

and 

Healthcare

Fire

Public Works

PARTNERSHIP ACROSS JURISDICTIONS, REGIONS, AND STATES

MULTI-DISCIPLINARY APPROACH

Federal State Region Local Tribal 

Citizen/

Private/

NGO

Emergency 

Management

Law 

Enforcement

Public Health 

and 

Healthcare

Fire

Public Works

PARTNERSHIP ACROSS JURISDICTIONS, REGIONS, AND STATES

MULTI-DISCIPLINARY APPROACH

Federal State Region Local Tribal 

Citizen/

Private/

NGO
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existing collaboration efforts and establishing and enhancing integrated regional 

operational systems for all mission areas. 

In developing this vision and updating their strategies, States and Urban Areas should 

complete the following activities: 

• Define current collaboration efforts already undertaken across jurisdictions and 

across disciplines within jurisdictions 

• Discuss opportunities for future collaboration with other geographic regions that 

can enhance capability within the State or Urban Area 

• Define future goals and objectives for a regional approach for prevention, 

protection, response, and recovery 

• Outline a process for integrating operational systems from multiple disciplines 

and jurisdictions for all mission areas 

It is important to note that regional collaboration is not necessarily a structured, 

institutionalized program across regions, but better defined as a strategic vision for the 

future, with a multi-jurisdictional and multi-disciplinary approach to homeland security. 

There is not a one-size-fits-all approach to regional collaboration, but the States’ or 

Urban Areas’ vision should support an enterprise-wide approach to building capability 

for all the mission areas.

B. Implement the National Incident Management System (NIMS) and National 

Response Plan (NRP) 

Background on the Implementation of NIMS and NRP Priority: 

HSPD-5, “Management of Domestic Incidents,” mandated the creation of the 

National Incident Management System (NIMS) and National Response Plan (NRP). The 

NIMS provides a consistent framework for entities at all jurisdictional levels to work 

together to manage domestic incidents, regardless of cause, size, or complexity. To 

promote interoperability and compatibility among Federal, State, local, and tribal 

capabilities, the NIMS includes a core set of guidelines, standards, and protocols for 

command and management, preparedness, resource management, communications and 

information management, supporting technologies, and management and maintenance of 

NIMS. The NRP, using the template established by the NIMS, is an all-discipline, allhazards plan that provides the structure and mechanisms to coordinate operations for 

evolving or potential Incidents of National Significance. Incidents of National 

Significance are major events that “require a coordinated and effective response by an

appropriate combination of Federal, State, local, tribal, private sector, and 

nongovernmental entities.”

For the purposes of updating the FY 2005 State and Urban Area strategies, the NIMS and 

NRP will be jointly noted as NIMS/NRP. 
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How to apply the NIMS and NRP Priority to the 2005 State and Urban Area Homeland 

Security Strategy Update: 

Both the NIMS and the NRP were formally issued by DHS after the submission to ODP 

of the most recently approved State and Urban Area Homeland Security Strategies. As 

such, States and Urban Areas are being asked to show how their strategic goals and 

objectives support the implementation of NIMS and the alignment of State and local 

operational plans to the NRP; the updated strategies are not, however, intended to 

reproduce a completed NIMS implementation plan in its entirety. 

Updated strategies should indicate how States and Urban Areas will incorporate the 

NIMS/NRP into their emergency response plans, policies and procedures, incident and 

resource management, trainings, programs, and exercises. Strategies also should reflect 

how NIMS/NRP will support integrated regional operational systems. This will be part 

of the consistent nationwide approach for Federal, State, local, and tribal governments to 

work together more effectively and efficiently to prevent, protect against, respond to, and 

recover from domestic incidents, regardless of cause, size, or complexity. 

The NIMS Integration Center (NIC) will be providing full NIMS implementation 

guidelines to States and Urban Areas for FY 2006 compliance in the summer of 2005. 

For further information on this priority: 

The NIMS can be found online at: 

http://www.fema.gov/pdf/nims/nims_doc_full.pdf

The NRP can be found online at: 

http://www.dhs.gov/interweb/assetlibrary/NRP_FullText.pdf

Additional information can be found online at: 

http://www.fema.gov/nims/

C. Implement the Interim National Infrastructure Protection Plan (NIPP) 

Background of the Interim National Infrastructure Protection Plan (NIPP) Priority: 

The Interim NIPP outlines how DHS will exercise leadership and work with State, Tribal, 

and local governments, and the private sector to implement HSPD-7: Critical 

Infrastructure Identification, Prioritization, and Protection to produce a risk management 

framework that fosters a more secure environment for our nation’s citizens and 

infrastructure. With the inclusion of the Interim NIPP implementation as a National 

Priority, infrastructure protection efforts are a required component of both State and 

Urban Area strategies and thus form a key pillar of the overarching homeland security 

program. States and Urban Areas are responsible for developing and implementing a 

critical infrastructure protection program as a component of their overarching homeland 

security program. 
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Critical Infrastructure and Key Resource (CI/KR) sites are potential terrorist targets 

deemed most crucial in terms of national-level public health and safety, governance, 

economic and national security, and public confidence consequences. Protecting CI/KR 

sites is a shared responsibility requiring cooperation among all levels of government – 

Federal, State, local, and tribal – and the involvement of the private sector. Effective 

security involves plans that define, identify, and set priorities for the most critical 

structures and assets that are potential targets for terrorist attacks. 

The NIPP provides the consistent, unifying structure for integrating critical infrastructure 

protection (CIP) efforts of CI/KR, which requires knowledge of terrorist tactics and 

targets, combined with a comprehensive understanding of CI/KR vulnerabilities and the 

protective measures that can effectively eliminate or mitigate those vulnerabilities. 

Consistent with HSPD-7, “Critical Infrastructure Identification, Prioritization, and 

Protection,” the NIPP reflects the 17 individual CI/KR sectors identified in the table 

below. 

Critical Infrastructure and Key Resource Sectors 

Critical Infrastructure and Key Resource Sectors 

Agriculture and Food 

Public Health and Health Care 

Drinking Water and Wastewater Treatment Systems 

Energy 

Banking and Finance 

National Monuments and Icons 

Defense Industrial Base 

Information Technology 

Telecommunications 

Chemical 

Transportation Systems 

Emergency Services 

Postal and Shipping 

Dams 

Government Facilities 

Commercial Facilities 

Nuclear Reactors, Materials, and Waste 

From a functional standpoint, the responsibility for creating and managing a critical 

infrastructure protection program entails building a program that can implement the risk 

management framework outlined in the Interim NIPP, to include: identifying critical 

assets; assessing risks; normalizing and prioritizing across infrastructure sectors; 

implementing protective programs; and measuring effectiveness of risk reduction 

measures. In the aggregate, these functions form the basis of an infrastructure protection 

program and are elements that support the implementation of relevant infrastructure 

protection-related goals and objectives in the State and Urban Area homeland security 

strategies. 
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How to apply the Interim NIPP Priority to the 2005 State and Urban Area Homeland 

Security Strategy Update: 

In updating their strategies, States and Urban Areas should provide a strategic context 

and vision for their infrastructure protection programs. In developing this vision, States 

and Urban Areas should consider how they will fulfill the following roles: 

• Build a Statewide critical infrastructure protection program that implements the 

risk management framework outlined in the Interim NIPP. Chapter 3 of the 

Interim NIPP provides more detailed discussion of the risk management 

framework and specific approaches to reducing critical infrastructure 

vulnerability.

• Engage all relevant intergovernmental coordination points (e.g., Federal, State, 

regional, tribal, local) to ensure a comprehensive approach to critical 

infrastructure protection across all appropriate levels of government and across 

both public and private sectors. 

• Develop strategies for the protection of CI/KR assets not on the Federal list, but 

which are of concern to the State or Urban Area. 

• Incorporate cyber security protection efforts across all sectors of CI/KR. 

DHS is currently working in conjunction with Federal, State, tribal, local, and private 

sector stakeholders to update and finalize the NIPP by fall of 2005. 

For further information on this priority: 

• Refer to the Interim NIPP or send comments and questions to NIPP@dhs.gov. 

• The Department of Homeland Security’s National Strategy for the Physical 

Protection of Critical Infrastructures and Key Assets: 

http://www.whitehouse.gov/pcipb/physical.html

• Homeland Security Presidential Directive – 7 (HSPD-7), “Critical Infrastructure 

Identification, Prioritization, and Protection”: 

http://www.whitehouse.gov/news/releases/2003/12/20031217-5.html 

• The USA PATRIOT Act defines critical infrastructure as “systems and assets, 

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

destruction of such systems and assets would have a debilitating impact on 

security, national economic security, national public health or safety, or any 

combination of these matters.” 

http://thomas.loc.gov/cgi-bin/bdquery/z?d107:h.r.03162: 

• The President’s National Strategy for Homeland Security (NSHS), issued in July 

2002, restates the definition of critical infrastructure provided in the PATRIOT 

Act. The Strategy expands on this definition, however, summarizing its rationale 

for classifying specific infrastructure sectors as critical: 

 http://www.whitehouse.gov/homeland/book/ 
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D. Strengthen Information Sharing and Collaboration Capabilities 

Background on Strengthen Information Sharing and Collaboration Capabilities Priority: 

The National Incident Management System (NIMS) identifies establishing an effective 

process for gathering, sharing and managing information and intelligence as a key 

characteristic of effective incident management. Likewise, the National Response Plan 

(NRP) identifies collection, analysis and application of intelligence and other information 

as a key component of mission performance. The National Preparedness Goal (NPG) 

reflects the consensus of the homeland security community regarding how to achieve 

appropriate levels of proficiency and the required supply of capabilities for these 

missions and processes through the Information Sharing and Collaboration National 

Priority. 

Effective “information sharing and collaboration” efforts depend on the ability of State, 

local, and tribal governments to collect, analyze, disseminate, and use Homeland 

Security-related intelligence, a capacity that has come to be known as 

“intelligence/information fusion.” Accordingly, the establishment of this fusion capacity 

is one of the top components of the Information Sharing and Collaboration Priority for 

State, local, and tribal governments. 

How to apply the Information Sharing and Collaboration Priority to the 2005 State and 

Urban Area Homeland Security Strategy Update:

Grantees are encouraged to develop a strategic framework that outlines an overall vision 

and approach relative to the Information Sharing and Collaboration Priority. At the 

State level, this strategic framework should consider how the fusion process will be 

organized and coordinated and how the State will establish and maintain or contribute to 

an analytic capability to facilitate the fusion process. At the Urban Area level, 

consideration should be given to how the fusion process will be established, i.e., as a 

stand-alone capacity or through direct integration into the statewide or regional structure, 

as well as how it will be organized and coordinated. 

 

Some goals to consider in the development of the strategic framework include: 

• Ensuring that the fusion process is fully capable of communicating effectively and 

efficiently with the Federal Government, through the Homeland Security 

Information Network (HSIN), the Homeland Security Operations Center (HSOC), 

and with our intelligence and law enforcement personnel across the Federal 

Government. 

• Utilizing HSIN, which will significantly strengthen the flow of real-time threat 

information to State, local, and private sector partners at the Sensitive-butUnclassified level, and provide a platform for communications through the 

classified SECRET level to State offices. 

• Establishing connectivity with the HSOC, which will be responsible for taking 

homeland security-related information and intelligence collected and/or produced 

via the State fusion process, blending it with up-to-date intelligence collected by 
15 

Federal entities, and sharing the resulting products with State, tribal, local, and 

private sector entities via the State's fusion process. 

• Integrating and coordinating with key local or regional Federal intelligence 

entities such as the FBI’s Field Intelligence Groups, the Joint Terrorism Task 

Forces, U.S. Immigration and Customs Enforcement’s Field Intelligence Units, 

the U.S. Coast Guard’s Field Intelligence Support Teams, the Drug Enforcement 

Administration’s High Intensity Drug Trafficking Area centers and other field 

intelligence units is essential. 

For further information on this priority: 

The Global Justice Information Sharing Initiative will release the ‘Recommended 

Minimum Standards for Establishing and Operating the Intelligence Component of 

Fusion Centers for Local, State, Tribal, and Federal Law Enforcement,’ in the ensuing 

months. 

Information Sharing and Collaboration information can be found at the following web 

sites: 

• DHS HSIN website: 

http://www.dhs.gov/dhspublic/display?theme=43&content=3747&print=true 

• SouthWest Emergency Response Network website: www.swern.gov 

• NorthWest Warning, Alert & Response Network website: www.nwwarn.gov

• Homeland Security Advisory Council Intelligence and Information Sharing 

Initiative: 

http://www.dhs.gov/interweb/assetlibrary/HSAC_IntelInfoSharingReport_1204.p

df

Information on FBI and related DOJ efforts in this area can be found at: 

www.fbi.gov/terrorinfo/counterrorism/partnership.htm

E. Strengthen Interoperable Communications Capabilities 

Background on Strengthen Interoperable Communications Priority: 

The lack of interoperable wireless communication systems is an issue that continues to 

affect public safety agencies in communities across the country. In many cases, agencies 

are unable to communicate or share critical voice and data information with other 

jurisdictions or disciplines during major events or even day-to-day operations. 

Interoperable Communications, the ability to provide an uninterrupted flow of critical 

information among responding multi-disciplinary and multi jurisdictional agencies at all 

levels of government before, during, and after an event, is a capability-specific priority. 

Communications interoperability underpins the ability of Federal, State, local, and tribal 

entities to work together effectively to prevent, protect against, respond to, and recover 

from terrorist attacks, major disasters, and other emergencies. 
16 

How to apply the Interoperable Communications Priority to the 2005 State and Urban 

Area Homeland Security Strategy Update: 

The Interoperability Continuum graphically depicts the five critical elements of success – 

governance, standard operating procedures, technology, training & exercise, and usage of 

equipment – that must be addressed to develop robust interoperability solutions. States 

must consider the Interoperability Continuum when updating their State and Urban Area 

Homeland Security Strategies. Below are expanded definitions of each element within 

the continuum: 

• Governance – A common governing structure for addressing interoperability 

issues will improve the policies, processes, and procedures of any major project 

by enhancing communication, coordination, and cooperation, establishing 

guidelines and principles, and reducing internal jurisdictional conflicts. 

• Standard Operating Procedures (SOPs) – SOPs are formal written guidelines or 

instructions for incident response. SOPs typically have both operational and 

technical components 

• Technology – The technology used to implement interoperable communications is 

dependent upon existing infrastructure within the region. Multiple technology 

solutions may be required to support large events. 

• Training and Exercises – Proper training and regular exercises are critical to the 

implementation and maintenance of a successful interoperability solution. 

• Usage of Equipment – Usage refers to how often interoperable communication 

technologies are used. Success in this element is contingent upon progress and 

interplay among the other four elements on the Interoperability Continuum. 

States and Urban Areas should show in their updated strategy how they plan to achieve 

interoperability on a regional, State, or multi-State level, in support of their efforts to 

establish integrated regional operational systems. States must refer back to the 

Interoperability Continuum when reviewing and updating their strategic goals and 

objectives. For example, if a State is currently implementing a regional interoperable 

communications network to link rural jurisdictions, it should consider including this as an 

objective within their strategy. The strategy should also illustrate how the State or Urban 

Area plans to implement its solution set using the five elements within the 

Interoperability Continuum and clearly explain how the interoperable communication 

goal(s) fits into the overall framework of the Continuum.

For further information on this priority: 

For information on SLGCP’s Interoperable Communications Technical Assistance 

Program (ICTAP): 

http://www.ojp.usdoj.gov/odp/ta_ictap.htm

For information on SAFECOM and the Interoperability Continuum: 

http://www.safecomprogram.gov/SAFECOM
17 

F. Strengthen CBRNE Detection, Response, and Decontamination Capabilities 

Background of CBRNE Detection, Response and Decontamination Capabilities Priority: 

As noted in the National Preparedness Guidance, this National Priority “leverages efforts 

throughout the government to develop robust capabilities to detect, neutralize, contain, 

dismantle, and dispose of CBRNE materials, and decontaminate exposed personnel and 

property.” This National Priority links with the “Strengthen Interoperable 

Communications Capabilities,” “Expanded Regional Collaboration,” and “Strengthen 

Information Sharing and Collaboration Capabilities” priorities. Establishing effective 

detection, response, and decontamination capabilities will require a regional approach; 

successful detection, response and decontamination operations will necessitate 

operational integrated regional systems. 

How to apply the CBRNE Priority to the 2005 State and Urban Area Homeland Security 

Strategy Update: 

States and Urban Areas are strongly encouraged to review their existing strategies to 

ensure that their Planning, Organization, Equipment, Training, and Exercise activities 

(POETE model) support this National Priority. States and Urban Areas should establish 

plans, organizations, equipment, training and exercises in order to strengthen CBRNE 

detection, response, and decontamination capabilities. In updating their strategies, States 

and Urban Areas are encouraged to identify appropriate goals and objectives to 

effectively enhance CBRNE detection, response, and decontamination capabilities. 

Planning and Organization: States are encouraged to formulate mutual aid agreements, 

both intra-State and inter-State, where appropriate. In addition, States, Urban Areas, and 

regions are encouraged to review emergency operations plans to recognize areas for 

improvement in detection, response, and decontamination, and to synchronize those plans 

across jurisdictional boundaries that support integrated regional operations. 

Equipment: States and Urban Areas should review procurement plans to ensure response 

communities are properly equipped with detection, response, and decontamination 

equipment. States and Urban Areas are further encouraged to maintain equipment 

interoperability to ensure that response assets are available in the event of an incident. 

Training and Exercise: States and Urban Areas should review training and exercise 

calendars to make sure that appropriate disciplines are being trained at appropriate levels 

in a regional approach across disciplines and jurisdictions. States and Urban Areas 

should further ensure training plans improve CBRNE detection, response, and 

decontamination capabilities within the State, Urban Area, or region. DHS reminds 

grantees to utilize the Homeland Security Exercise and Evaluation Program (HSEEP) to 

measure capabilities and highlight areas for improvement. 

For further information on this priority: 

CBRNE training available through ODP: 
18 

http://www.ojp.usdoj.gov/odp/training.htm 

For information on the SLGCP exercise program and HSEEP: 

http://www.ojp.usdoj.gov/odp/exercises.htm 

For CBRNE detection, response, and decontamination equipment included on the SLGCP 

Authorized Equipment List and posted on the Responder Knowledge Base: 

www.rkb.mipt.org 

G. Strengthen Medical Surge and Mass Prophylaxis Capabilities 

Background of Strengthen Medical Surge and Mass Prophylaxis Capabilities Priority: 

Establishing an effective medical surge and mass prophylaxis capability requires 

embracing a multi-disciplinary and multi-jurisdictional collaborative approach. These 

capabilities should be supportive of integrated regional operational systems being 

established in support of the expanded regional collaboration priority, and demonstrate 

effective integration among public health, healthcare services, and other appropriate 

disciplines (e.g., emergency management, emergency medical services, etc.). Much work 

in these areas has already been accomplished through programs administered by the U.S. 

Department of Health and Human Services (HHS). These accomplishments and ongoing 

efforts should be leveraged in further strengthening and broadening medical surge and 

mass prophylaxis capabilities. 

Medical Surge

As noted in the National Preparedness Guidance, the Nation’s healthcare system, 

particularly hospitals, must be able to handle large numbers of patients requiring 

immediate care following a major incident. Emergency-ready hospitals, working 

collectively, must be able to handle different types of injuries, including trauma and 

burns, infections, or chemical- or radiation-induced injury. The medical provider 

community must have the capability to rapidly accommodate an influx of supplemental 

healthcare assets from mutual-aid partners, as well as the State and Federal government. 

Additionally, local public health and public safety agencies must develop capabilities and 

coordination capacity throughout the local, and regional health and medical community. 

Because most of the Nation’s medical assets are privately owned, capability-building 

must close the public-private gaps, as well as integrate multiple disciplines and levels of 

government. 

Mass Prophylaxis

As noted in the National Preparedness Guidance, public health threats and emergencies 

can ensue from a myriad of infectious agents, some of which can be mitigated by 

administration of immunizations and/or antibiotics and antiviral drugs. Although a wide 

variation exists among the disease and prophylaxis protocols, they all share a need for 

rapid deployment, distribution, and administration of the countermeasures. Local public 

health departments have the responsibility to develop and maintain (through exercises 

and drills) the capability to carry out first response and ongoing (Federally-assisted) mass 
19 

antibiotic dispensing and vaccination campaigns tailored to the local population. States 

are responsible for providing support and assuring coordinated multi-jurisdictional 

responses. Federal assets and resources are intended to augment local and regional first 

response capability. 

How to apply the Medical Surge and Mass Prophylaxis Capability Priority to the 2005 

State and Urban Area Homeland Security Strategy Update: 

States and Urban Areas should examine how they are integrating preparedness activities 

across disciplines to build and maintain medical surge and mass prophylaxis capabilities. 

Building and maintaining these capabilities must be a collaborative effort across the State 

public health and healthcare agencies. Specific attention should be paid to how all 

available preparedness funding sources can be effectively leveraged in a collaborative 

manner to support the enhancement of these capabilities. State health, homeland 

security, and emergency management organizations are encouraged to seek out, 

coordinate, and collaborate with one another to better understand progress made to date 

and to scope future activity under this priority. States will be asked to report on how they 

have integrated their preparedness activities to support building these capabilities, and 

how they have leveraged various federal assistance programs, including those 

administered by DHS and HHS in doing so. 

For further information on this priority: 

Medical Surge

The HHS’ Health Resources and Services Administration (HRSA) administers the 

National Bioterrorism Hospital Preparedness Program (NBHPP). The NBHPP funds state 

health departments to enhance the ability of hospitals and supporting health care entities 

(Poison Control Centers, Health Centers, EMS) to prepare for and respond to 

bioterrorism and other public health emergencies. The NBHPP requires States to report 

progress in achieving critical benchmarks necessary to promote Statewide and regional 

surge capacity. For the FY 2005 application, States were required to report proposed 

activities, timelines and budgets for achieving the critical benchmarks, as well as progress 

on sentinel indicators to HRSA by July 1, 2005. 

Please refer to the Health Resources and Services Administration Mass Casualty website: 

http://www.hrsa.gov/bioterrorism/

Mass Prophylaxis

As outlined in the HHS’ Centers for Disease Control and Prevention (CDC) FY 2005 

Public Health Emergency Preparedness Cooperative Agreement, the Mass Prophylaxis 

and Vaccination Outcome is for appropriate prophylaxis and vaccination strategies to be 

implemented in a timely manner upon the onset of an event, with an emphasis on the 

prevention, treatment, and containment of the disease. Prophylaxis and vaccination 

campaigns are integrated with corresponding public information strategies. 
20 

Three required Critical Tasks have been identified by CDC for this outcome. These three 

required critical tasks were addressed by State health offices in their FY 2005 

applications, which were due to CDC on July 13, 2005. In their application, state health 

offices will address their plans to continue the implementation of these activities in the 

next cooperative agreement cycle. The three tasks are: 

• Decrease the time needed to dispense mass therapeutics and/or vaccines 

• Decrease time to provide prophylactic protection and/or immunizations to all 

responders, including non-governmental personnel supporting relief efforts 

• Decrease the time needed to release information to the public regarding 

dispensing of medical countermeasures via the jurisdiction’s Joint Information 

Center (JIC) (if JIC activation is needed) 

Please refer to the Centers for Disease Control and Prevention, Coordinating Office of 

Terrorism Preparedness and Emergency Response’s website: 

http://www.bt.cdc.gov/

IV. SUBMISSION OF UPDATED STATE AND URBAN AREA STRATEGIES 

The submission of State and Urban Area strategy updates will take on a two-part 

approach. First, alignment of objectives to the seven National Priorities will be 

completed in the ODP online Data Collection Tool (DCT) using a simple drop-down 

feature. The DCT will collect the minimum requirements presented in this document, 

and build off of the previous State and Urban Area strategy submissions. The only parts 

of the strategy required to be submitted in the DCT template are the updated goals 

and objectives, and the alignment of those goals/objectives to the seven National 

Priorities. 

In addition, the DCT includes a brief section to gather information about the updated 

strategy. To help the nation identify future national priorities, states and urban areas are 

asked to identify 3-5 capabilities from the TCL that represent state/urban area priorities. 

States and Urban Areas are also asked to provide a brief description of the extent of the 

strategy update. If States and Urban Areas wish to conduct a more extensive update, they 

may update other sections of their strategies, though these updates are not required. The 

DCT will be available in August 2005 for strategy update submissions. 

States and Urban Areas will have the opportunity to submit their complete and updated 

strategies to ODP in a PDF or word document format. The intent of the two-part 

approach is to capture both quantifiable data on strategic goals and objectives from the 

DCT and to afford States and Urban Areas flexibility in presenting a complete view of 

their homeland security efforts. Additional guidance on the new functionality in the DCT 

and instructions for submission of strategy documents in PDF or word document format 

will be provided in August. 
21 

V. SUMMARY OF REQUIREMENTS 

Updated State and Urban Area strategies, goals, and objectives should address the four 

mission areas – Prevent, Protect, Respond, and Recover – within the context of 

collaboration, and reflect the seven National Priorities outlined in the National 

Preparedness Goal and supporting NPG. This is an update to existing strategies; the 

intent of this guidance is not to require States or Urban Areas to develop an entirely new 

strategy, but rather to tailor and update, as appropriate, existing goals and objectives to 

support the National Preparedness Goal and seven National Priorities. In addition, States 

and Urban Areas should ensure that local jurisdictions are afforded an opportunity to 

participate in the planning process and that citizen preparedness efforts are addressed, as 

appropriate. 

While the main purpose of the update is to align State and Urban Area Homeland 

Security Strategies with the four mission areas and the seven National Priorities, States 

and Urban Areas should continue to include additional goals and objectives that reflect 

specific State and Urban Area priorities. 

This year’s strategy update will prepare States and Urban Areas to undertake an 

analytical review of their homeland security programs and capabilities, to be initiated 

later this year, and support the establishment of the National Preparedness System. In the 

future, States and Urban Areas will be asked to more completely revise their strategies to 

address their goals, objectives, mission statements and preparedness vision for 2007-

2009. 

Strategy Checklist 

The checklist provided below may be a helpful tool for States and Urban Areas to use in 

tracking updates to their strategies. This checklist does not need to be submitted to ODP. 

1. Align the strategic objectives that support State and Urban Area goals to the seven National 

Priorities. This does not require an update to existing objectives if those objectives already 

reflect the National Priorities. However, the alignment of those objectives to the National 

Priorities should be clearly articulated. 

Yes No 

Does the strategy address Regional Collaboration? 

Does the strategy address NIMS and NRP? 

Does the strategy address the Interim NIPP? 

Does the strategy address Information Sharing and Collaboration? 

Does the strategy address Interoperable Communications? 

Does the strategy address CBRNE capabilities? 

Does the strategy address Medical Surge and Mass Prophylaxis Capabilities? 

2. Describe the strategies, goals, and objectives within the framework of the mission areas: 

Prevent, Protect, Respond, and Recover. Yes No 

Does the strategy address prevention? 

Does the strategy address protection? 

Does the strategy address response? 

Does the strategy address recovery? 
22 

3. Local jurisdictions participation in the strategic planning process Yes No 

Does the strategic planning process include participation from local jurisdictions? 

4. Address citizen preparedness and volunteer efforts Yes No

Does the strategy appropriately address citizen preparedness and volunteer efforts? 

5. Regionalization and mutual aid Yes No

Does the strategy address regionalization and mutual aid? 

6. Strategy update information Yes No

Has the DCT form that addresses additional state/urban area priorities been completed? 

Has the DCT form that addresses the extent to which this strategy has been updated from the 

State or Urban Area’s previously approved strategy been completed? 

 

VI. GENERAL SUPPORT 

ODP has several support mechanisms available to assist States and Urban Areas with 

updating their strategies, including ODP Preparedness Officers and the Central 

Scheduling and Information Desk (CSID). ODP Preparedness Officers work closely with 

State and local officials in assigned States and territories to assist agencies in enhancing 

their homeland security preparedness. Preparedness Officers will be in continuous 

contact with the State Administrative Agencies (SAAs) and local officials and should be 

considered as the primary point of contact within ODP for addressing questions, 

concerns, general issues, and accessing specialized expertise. The CSID is a nonemergency resource for use by State and local emergency responders across the Nation. 

The CSID provides general information on all ODP programs. ODP Preparedness 

Officers and the CSID can each be reached through the CSID at 1-800-368-6498 or 

askcsid@dhs.gov. CSID hours of operation are from 8:00 a.m. - 7:00 p.m. (EST), 

Monday-Friday.
A-1 

APPENDIX A: STATE AND URBAN AREA HOMELAND SECURITY 

STRATEGY FORMAT AND SUBMISSION 

 

This appendix explains how to format and submit the homeland security strategy. 

Additional guidance on the new functionality in the Data Collection Tool (DCT) and 

instructions for submission of strategy documents will be provided in August of 2005. 

If a State or Urban Area would like to submit more than the FY 2005 minimum 

requirements for the strategy update, they may submit their revised strategy using the 

template in the DCT or by uploading their strategy document in PDF format to the ODP 

Secure Portal. If a PDF strategy document is submitted, it should, at a minimum, clearly 

address the following areas: Purpose, Vision, Focus, Coordination, Effort, Description of 

Jurisdictions, Regionalization and Mutual Aid, Goals, Objectives, Implementation Steps, 

and Evaluation Plan 

Note that several sections that were associated with the FY2003 assessment are no longer 

required to be included in the strategy. These sections include: Jurisdiction Assessment 

Process, State Risk Profile, Capabilities and Needs Profile, Annex A: List all 

jurisdictions, Annex B: Jurisdiction Prioritization List, and Annex C: State 

Implementation Plan for Development of the SHSS. 

I. PURPOSE, VISION, FOCUS AND COORDINATION

A. Purpose 

This section includes the purpose of the strategy and the proposed outcome. The 

development of a strategy is usually driven by what the State or Urban Area is trying to 

accomplish. A strategy is all encompassing because it answers the question – “What will 

success look like?” It should be realistic and credible, well articulated, and easily 

understood by members of the SAA, Urban Area, regions, jurisdictions, and localities. 

B. Vision 

A vision is a guiding image or statement that should orient the State or Urban Area’s 

energies, serve as a guide to action, and challenge and inspire the State, Urban Area, and 

jurisdictions to want to achieve the State and/or Urban Area goals and the National 

Preparedness Goal. When developing a vision statement, the State or Urban Area should 

consider these points: 

• The vision should represent the most desirable and feasible condition for the 

organization to be in to accomplish its mission 

• The more realistic and achievable the vision, the better the odds of success 

• The greater the commitment to the vision, the better the odds of success 

• Vision statements should be succinct, not long narratives 
A-2 

C. Focus 

The focus section should describe succinctly how the State or Urban Area intends to 

achieve its vision and pursue specific action items supporting the homeland security 

strategy. The State or Urban Area may have as many focus points as they feel necessary 

to define and achieve the vision. A focus point should directly link to each component of 

the vision statement. It will guide the State or Urban Area toward achieving its vision 

and end goals. It should identify resources and systems that are available to support and 

focus the State or Urban Area’s efforts to achieve the vision and goals. 

D. Coordination 

The coordination section should describe the following: 

• The organizational system at the State or Urban Area-level for strategy 

development and approval 

• The process used to complete the strategy to include the decision-making 

authority 

• State and Urban Area efforts to ensure coordination of strategy development 

among various disciplines and agencies required to fulfill capabilities highlighted 

in the National Preparedness Goal 

• Coordination of local government concerns and Citizen Corps efforts 

E. Effort 

The Effort section should describe efforts to ensure coordination of strategy development 

and assessment activities among emergency agencies and disciplines within the State or 

Urban Area. 

F. Description of Jurisdictions 

The Description of Jurisdictions section should describe the jurisdictions used throughout 

the remainder of this strategy and the approving authority at the State or Urban Area 

level. It should provide the rationale used for determining jurisdictions and explain how 

your strategy encompasses the entire State or Urban Area. 

G. Regionalization and Mutual Aid 

Preventing, protecting against, responding to, and recovering from major events (as 

represented by the National Planning Scenarios) will require that capabilities be drawn 

from a wide area. The area from which resources will be drawn may or may not expand 

beyond the current area served by existing regions. States and Urban Areas should 

examine current regional collaboration efforts and explore new approaches to developing 

regional capabilities. 

To this end, States should describe the structure of its regions and include a description of 

any inter-state and/or cross-border regional efforts. If the State is not organized into 

regions, it should describe if and how the State plans to regionalize. The Goal does not 

mandate that State and local governments adopt a regional governmental structure, but it 

does require that all levels of government embrace a regional approach to building 

capability. In the context of regionalization, the State should provide a narrative 
A-3 

description of how the state currently uses and plans to use mutual aid to prevent, protect 

against, respond to, and recover from major events. 

Urban Areas should describe how the urban area is integrating and coordinating 

operations to prevent, protect against, respond to, and recover from major events. It 

should also describe how mutual aid is leveraged. 

II. GOALS, OBJECTIVES, AND IMPLEMENTATION STEPS

The State or Urban Area objectives should be aligned to the seven National Priorities and 

the National Preparedness Goal. The implementation steps should be tasks or action 

steps that support and achieve the State and Urban Area goals and objectives. Again, the 

intent of this guidance is not to require States or Urban Areas to write new goals and 

objectives, but rather to tailor and update, if necessary, existing goals and objectives to 

support the National Preparedness Goal and seven National Priorities. In addition to the 

priority alignment, other issues that should be addressed in State and Urban Area goals, 

objectives, and/or implementation steps include local government concerns and Citizen 

Corps efforts. As always, the State and Urban Area Homeland Security Strategies should 

continue to address other issues that may be outside the scope of the National priorities 

such as border security concerns, agro-terrorism, or other unique issues specific to the 

State or Urban Area preparedness efforts. 

Alignment of objectives to the seven National Priorities will be completed in the DCT 

using a drop-down feature. The new DCT features will be available in August 2005. 

Additional guidance on the new functionality in the tool will be forthcoming. 

A. Goals 

A Strategic Goal is a statement of aim or purpose included in a strategic plan. 

A goal is a position that the State or Urban Area wants to achieve regarding an improved 

level of capability. These goals will help the State and Urban Area achieve its vision, 

focus on the long term, and broaden their scope of preparedness. The goals for the 

strategy should be broad statements of intent that relate upward to the vision. Goals 

orient the vision towards results by forming a basic road map toward the fulfillment of 

the vision. They identify how a State or Urban Area intends to address its identified 

critical issues and are designed to drive actions and represent the general end toward 

which a State or Urban Area is directed. 

A comprehensive strategy should contain both broad-based, long-term goals and 

corresponding short-term objectives that address areas of prevention, protection, 

response, and recovery enhancements within the State or Urban Area. The homeland 

security strategies should have at least one goal that addresses each of the following 

areas: Prevention, Protection, Response, and Recovery (as defined earlier in the strategy 

guidance). Given that a State or Urban Area’s ability to achieve its goals represents 
A-4 

success, the quality of the goals and performance against those goals are the primary 

determinants of an overall successful strategy. 

B. Objectives 

An Objective4 sets a target level of performance over time expressed as a tangible, 

measurable objective, against which actual achievement can be compared, including a 

goal expressed as a quantitative standard, value or rate. 

An objective should be: 

• Specific, detailed, particular and focused – helping to identify what is to be 

achieved and accomplished 

• Measurable – quantifiable, providing a standard for comparison, and identifying a 

specific achievable result 

• Achievable – the objective is not beyond a State, region, jurisdiction or locality’s 

ability 

• Results-oriented – identifies a specific outcome 

• Time-limited – a target date exists to identify when the objective will be achieved 

State Administrative Agencies (SAA) or Urban Area Working Groups should assess the 

quality of the strategy’s objectives to determine if the measures are meaningful in the 

context of a specific action item or preparedness effort, the measurement methodology is 

sound, and the measures can be verified with reliable data. Only if the objectives meet 

these criteria should they be included in the strategy. 

When developing objectives, the State or Urban Area should consider these points: 

 

• For each goal, there should be at least one objective or performance measure to 

track progress for achieving goals 

• Objectives, which have corresponding implementation steps, should be guided by 

solution areas – Planning, Organization, Equipment, Training, and Exercises – 

that support achievement of the goal and reduce shortfalls in capabilities 

• When objectives are accomplished, they should provide the important steps 

necessary to achieve the purpose, vision, and goals of the State or Urban Area 

• Objectives must reflect State or Urban Area priorities and demonstrate, if 

applicable, how they link to the seven National Priorities 

Due to the importance of objectives and performance measures, the States, Urban Areas, 

and jurisdictions must agree on appropriate objectives early in the development phase to 

allow for review with relevant stakeholders, if needed. 

 

4

 In this document, “objectives” and “performance measures” have similar meanings. The Office of 

Management and Budget has established definitions for “performance measures” that will be used in this 

document to describe performance “objectives.” See “Examples of Performance Measures” at 

www.whitehouse.gov/omb/part/.
A-5 

Each of the seven National Priorities must be aligned with at least one or more 

objectives. This is accomplished with a drop-down box in the DCT. 

 

C. Implementation Steps 

The implementation steps provide a road map to the accomplishment of the goals and 

objectives. It shifts the State and Urban Area’s focus from the development of a purpose, 

vision, goal, and objective to acting upon them. Again, the intent of this guidance is not 

to require States or Urban Areas to develop new implementation steps, but rather to 

improve upon or tailor, if necessary, their existing implementation steps. 

As discussed previously, each goal must have at least one objective and the objective 

must be measurable and address a desired capability within each solution area. Once an 

objective has been established, implementation steps should be constructed that will 

provide guidance to the State or Urban Area on how the objective will be achieved. 

III. EVALUATION PLAN FOR THE HOMELAND SECURITY STRATEGY

To ensure the success of the strategy, the State or Urban Area must guarantee that it has 

an evaluation plan for monitoring progress, compiling key management information, 

tracking trends, and keeping the strategy on track. The evaluation plan should outline a 

process for reviewing and analyzing the steps being taken to achieve the goals and 

objectives of the strategy as well as determining whether the right elements are being 

used to measure progress. The review and analysis process enhances the plan’s 

flexibility by providing the opportunity to validate internal and external facts and 

assumptions and to allow for adaptation and revision as conditions alter. 

A review and analysis process should be a part of the normal operations and management 

of the State or Urban Area. The review and analysis should focus on the steps being 

taken to achieve the goals and objectives of the strategy as well as determining whether 

the right elements are being used to measure progress. Measurable goals and objectives 

are the foundation to determining progress. Goals and objectives that are specific, 

quantifiable, and time sensitive allow for progress to be measured during the evaluation 

process. The outcomes of the review and analysis should assist in updating the strategy. 5 

The frequency of review and analysis should be determined by the strategic planning 

team and the top-level management. Options to consider in designing a review and 

analysis process include: 

• Using the strategy’s key elements as a framework for monthly business meetings 

• Conducting a formal review and analysis on a quarterly basis 

• Conducting an annual review and analysis to reassess and update the entire 

strategy as necessary (This annual review may also revise and/or modify 

objectives for the out year of the strategy’s time frame) 

 

5

 For a suggested practice on establishing a process for updating your strategy, please refer to the ODP 

Program Management Handbook. This handbook will be released in Summer 2005. 
A-6 

• Using an automated tool for tracking progress against the strategy, specifically the 

goals and objectives 

• Incorporating reporting features into an automated tool to allow for periodic 

reporting 

• Forming a review committee, which includes key decision-makers, to review 

reports and progress being made against goals and objectives on a regular basis 

Most revisions that are a result of the review and analysis process focus on objectives, 

time frames, and measurements. The core elements of the strategy – the purpose, vision, 

and goals – rarely change over time. 

The State or Urban Area’s evaluation plan should include a description of the tools that 

the State or Urban Area has in place (or will have in place) to evaluate the impact of the 

homeland security strategy in efforts to develop and maintain capabilities through funded 

programs and projects. It should also set forth a time frame and process for conducting 

formal reviews, as described above, and should address the following concerns: 

• How often should review and analysis take place? 

• What exactly should be reviewed? 

• Who will be responsible for performing these reviews? 

The State or Urban Area must consider all required reporting requirements when 

determining the frequency of the review and analysis activities because its homeland 

security strategy will be require resources (funding, technical assistance, etc.) from more 

than one source. Existing reporting requirements may be used as a basis for a review and 

analysis including financial reviews, progress reports, and final administrative reports. 

IV. STRATEGY UPDATE SUMMARY

The DCT includes a brief section to gather information about the strategy. To help the 

nation identify future national priorities, states and urban areas are asked to identify 3-5 

capabilities from the TCL that represent state/urban area priorities. States and Urban 

Areas are also asked to provide a brief description of the extent of the strategy update.