14 September 2007

Civil Support

Joint Publication 3-28
PREFACE

i

1. Scope

This publication provides overarching guidelines and principles to assist commanders and

their staffs in planning and conducting joint civil support operations.

2. Purpose

This publication has been prepared under the direction of the Chairman of the Joint Chiefs

of Staff. It sets forth joint doctrine to govern the activities and performance of the Armed Forces

of the United States in civil support operations and provides the doctrinal basis for interagency

coordination during domestic civil support operations. It provides military guidance for the

exercise of authority by combatant commanders and other joint force commanders (JFCs) and

prescribes joint doctrine for operations, education, and training. It provides military guidance

for use by the Armed Forces in preparing their appropriate plans. It is not the intent of this

publication to restrict the authority of the JFC from organizing the force and executing the

mission in a manner the JFC deems most appropriate to ensure unity of effort in the

accomplishment of the overall objective.

3. Application

a. Joint doctrine established in this publication applies to the Joint Staff, commanders of

combatant commands, subunified commands, joint task forces, subordinate components of these

commands, and the Services.

b. The guidance in this publication is authoritative; as such, this doctrine will be followed

except when, in the judgment of the commander, exceptional circumstances dictate otherwise.

If conflicts arise between the contents of this publication and the contents of Service publications,

this publication will take precedence unless the Chairman of the Joint Chiefs of Staff, normally

in coordination with the other members of the Joint Chiefs of Staff, has provided more current

and specific guidance. Commanders of forces operating as part of a multinational (alliance or

coalition) military command should follow multinational doctrine and procedures ratified by

the United States. For doctrine and procedures not ratified by the United States, commanders

should evaluate and follow the multinational command’s doctrine and procedures, where

applicable and consistent with US law, regulations, and doctrine.

For the Chairman of the Joint Chiefs of Staff:

WALTER L. SHARP

Lieutenant General, USA

Director, Joint Staff
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Preface

JP 3-28

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TABLE OF CONTENTS

iii

PAGE

EXECUTIVE SUMMARY.............................................................................................. vii

CHAPTER I

FRAMEWORK

• General ...................................................................................................................... I-1

• Homeland Defense, Civil Support, and Homeland Security Framework ..................... I-1

• The Civil Support Operational Framework ................................................................. I-4

• Homeland Security Directive ..................................................................................... I-6

• Incident Management ................................................................................................ I-8

CHAPTER II

DEPARTMENT OF DEFENSE OPERATIONAL ENVIRONMENT

• General .................................................................................................................... II-1

• Requests for Assistance............................................................................................ II-2

• Immediate Response ................................................................................................ II-7

• Roles and Responsibilities ....................................................................................... II-8

• Command and Control.............................................................................................. II-18

• Interagency Coordination .......................................................................................... II-21

• Information Environment............................................................................................ II-23

• Chemical, Biological, Radiological, Nuclear, and High-yield Explosives

Environment.......................................................................................................... II-25

• Legal and Policy Considerations ................................................................................. II-25

CHAPTER III

OPERATIONS

• Categories and Types of Operations ........................................................................ III-1

• Domestic Incident Management Response Operations and Considerations .................... III-11

• Operational Phases .................................................................................................. III-11

• Civil Support Planning Considerations ....................................................................... III-13

CHAPTER IV

SUPPORTING AND SUSTAINING ACTIVITIES

• General ................................................................................................................... IV-1

• Public Affairs.......................................................................................................... IV-1

• Religious Support ................................................................................................... IV-2

• Logistics................................................................................................................. IV-5

• Intelligence Support .............................................................................................. IV-12
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• International Support ............................................................................................... IV-15

• Personnel ............................................................................................................... IV-15

• Financial Management ............................................................................................. IV-17

• Safety Support ....................................................................................................... IV-17

• Legal ..................................................................................................................... IV-17

APPENDIX

A Reimbursement for Civil Support Operations ..................................................... A-1

B Standing Rules for the Use of Force for US Forces ............................................. B-1

C Base Support Installation/Joint Reception, Staging, Onward Movement,

and Integration ................................................................................................. C-1

D Overview of the National Response Plan and National Incident

Management System ........................................................................................ D-1

E Department of Homeland Security....................................................................... E-1

F Key Civil Support Legal and Policy Documents .................................................. F-1

G References ......................................................................................................... G-1

H Administrative Instructions ................................................................................ H-1

GLOSSARY

Part I Abbreviations and Acronyms .................................................................... GL-1

Part II Terms and Definitions............................................................................... GL-6

FIGURE

I-1 Notional Relationship Between Homeland Defense, Civil Support, and

Homeland Security Missions......................................................................... I-3

I-2 Relationships for Homeland Defense and Civil Support .................................. I-4

II-1 Request for Assistance .................................................................................. II-4

II-2 Request for Assistance Process Decision Matrix ............................................ II-5

II-3 The Adjutant General Roles ......................................................................... II-13

II-4 Federal Emergency Management Agency Regional Chart ............................ II-20

III-1 Civil Support Operation Categories and Operational Types .......................... III-2

III-2 Examples of Critical Infrastructure .................................................................... III-9

III-3 Critical Infrastructure Protection Framework ................................................... III-10

III-4 Five Phases of a Civil Support Operation ....................................................... III-12

B-1 Continuum of Force Levels .............................................................................. B-3

D-1 Federal Response ........................................................................................... D-3

D-2 Emergency Support Functions Descriptions .................................................. D-7

D-3 Designation of Emergency Support Functions Coordinator and Primary and

Support Agencies ...................................................................................... D-11

D-4 National Incident Management System Framework..................................... D-15

D-5 Typical Incident Command System Structure ................................................... D-17

D-6 Joint Field Office Established for a Natural Disaster .......................................... D-20
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D-7 Joint Field Office for a National Special Security Event ..................................... D-23

D-8 Joint Field Office for a Terrorist Incident .......................................................... D-24

D-9 Sample Mapping of Emergency Support Function Positioning within a

Joint Field Office ...................................................................................... D-26

D-10 Joint Field Office for Federal-to-Federal Support ........................................ D-27

E-1 Department of Homeland Security Organizational Chart ................................ E-2
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EXECUTIVE SUMMARY

COMMANDER’S OVERVIEW

•

•

•

vii

Describes the Civil Support (CS) Framework

Covers the Department Of Defense CS Operational Environment

Discusses CS Operations

General

A secure US homeland is

the Nation’s first priority,

and is a fundamental

aspect of the national

military strategy.

The Department of

Defense protects the

homeland through two

distinct but interrelated

missions — homeland

defense and civil support.

The military will continue to play a vital role in securing the homeland

through the execution of homeland defense (HD) and civil support

(CS) missions. CS capabilities are derived from Department of

Defense (DOD) warfighting capabilities that could be applied to foreign/

domestic assistance or law enforcement support missions. CS focuses

in a domestic context, but extends beyond the standard domestic

definition. DOD contributes to homeland security (HS) by conducting

HD operations overseas and in the approaches to the US, and by

providing CS for disasters and declared emergencies, to designated

law enforcement agencies, and to other activities. DOD emergency

preparedness contributes to HD and CS missions since it includes all

measures to be taken by DOD in advance of an emergency to reduce

the loss of life and property and to protect our nation’s institutions.

While the HD and CS missions are distinct, some department roles

and responsibilities overlap, and operations require extensive

coordination between lead and supporting agencies. The HD,

CS, and HS missions are separate, but have areas where roles

and responsibilities may overlap and/or lead and supporting

roles may transition between organizations. DOD serves as

the federal department with lead responsibility for HD, which

may be executed by DOD alone or include support provided to

DOD by other agencies. CS is the overarching term for DOD’s

support to civilian authorities. DOD’s role in the CS mission

consists of support to US civil authorities (Department of

Homeland Security [DHS] or other agency) for domestic

emergencies and for designated law enforcement and other

activities. HD and CS operations may occur in parallel and require

extensive integration and synchronization. In addition, operations

may transition from HD to CS to HS and vice versa with the lead

depending on the situation and US Government’s desired outcome.
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Executive Summary

JP 3-28

The National Response Plan (NRP) was a result of Homeland Security

Presidential Directive-5, Management of Domestic Incidents: a single,

comprehensive approach to domestic incident management built on

the template of the National Incident Management System (NIMS).

The NRP is an all-hazards plan that provides the structure and

mechanisms for national-level policy and operational direction for

incident management to ensure timely and effective federal support.

The NRP is applicable to all federal departments and agencies that

have primary jurisdiction for or participate in operations requiring

coordinated federal response. The NRP identifies how federal

departments and agencies will respond to state, tribal, and/or local

requests for assistance (RFAs). A basic premise of both the NIMS

and the NRP is that incidents are generally handled at the lowest

jurisdictional level possible. The NRP is coordinated and managed by

the Federal Emergency Management Agency. The overall coordination

of federal incident management activities is executed through the

Secretary of Homeland Security. NIMS is a consistent doctrinal

framework for incident management at all jurisdictional levels. It includes

a core set of concepts, principles, terminology, and technologies

covering the incident command system; multiagency coordination

systems; unified command; training; identification and management of

resources (including systems for classifying types of resources);

qualifications and certification; and the collection, tracking, and reporting

of incident information and incident resources.

Because the public, media, and perhaps local and state officials, may

not clearly understand Constitutional limits, expectations must be

managed and communicated. Military units tasked to support civil

authorities during domestic disasters enable rapid and effective response

operations that limit loss of life, mitigate suffering, and curtail further

significant property damage. The challenge remains integrating military

and civil capabilities within a disaster stricken operating environment

with little intact infrastructure while urgently and efficiently executing

relief operations. Authority over and control of DOD forces/

capabilities shall be maintained by the President, as Commander

in Chief, through the Secretary of Defense (SecDef) and the chain of

command as established by law. When emergency conditions dictate,

and when time does not permit approval from higher headquarters,

local military commanders and responsible DOD component officials

are authorized to respond to requests from local authorities and to

Homeland Security

Presidential Directive-5,

Management of Domestic

Incidents, sets forth roles

and responsibilities of the

Federal government for

domestic incident

management by

establishing a single

incident management

system.

Introducing federal forces

into an otherwise civil

response situation

requires a clear

understanding of

authorities and their

limits.

Management of Domestic Incidents

Department of Defense Operational Environment
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Executive Summary

initiate immediate response actions to save lives, prevent human suffering,

or mitigate great property damage under imminently serious conditions.

The Robert T. Stafford Disaster Relief and Emergency Assistance Act

(Public Law 93-288) (Title 42 US Code, Section 5121), authorizes

the Federal government to help state and local governments alleviate

the suffering and damage caused by disasters. Requests for DOD

assistance may occur under Stafford Act or non-Stafford Act

conditions. A Stafford Act incident is one in which state and local

authorities declare a state of emergency and request federal assistance.

This type of emergency is an incident of national significance for which

the Stafford Act establishes programs and processes for the Federal

government to provide major disaster and emergency assistance to

states, local governments, tribal nations, individuals, and qualified private

nonprofit organizations. A non-Stafford Act incident is essentially all of

the other emergencies that occur each year and do not necessarily

overwhelm state and local authorities, and where the event would

benefit from federal assistance and coordination. The Secretary of

Homeland Security is responsible for overall coordination of Federal

Stafford and non-Stafford incident management activities.

Federal agencies or state governors request DOD capabilities to

support their emergency response efforts by using a formal RFA

process. How DOD handles RFAs depends on various factors,

such as: Stafford Act or non-Stafford Act situation, urgency of

the incident, establishment of a joint field office, if a defense

coordinating officer (DCO) or joint task force has been appointed,

and originator of the request (incident command, state, regional,

or national).

In general, the federal coordinating officer at the incident site receives

RFAs from civil authorities and submits them to the Office of the

Executive Secretary of the Department of Defense, who forwards

them to the Assistant Secretary of Defense for Homeland Defense

and Americas' Security Affairs (ASD[HD&ASA]) and the Joint

Director of Military Support for validation and order processing,

respectively. When a DCO is at the incident site, RFAs are submitted

directly to ASD(HD&ASA). Once the SecDef approves the request,

an order is issued to combatant commands, Services, and/or agencies

to accomplish the mission.

Under imminently serious conditions, when time does not permit

approval from higher headquarters, any local military commander, or

responsible officials of other DOD components may, subject to any

supplemental direction provided by their higher headquarters, and in

Requests for assistance.

Request for assistance

process.

Immediate response.
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Executive Summary

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response to a request from civil authorities, provide immediate

response to save lives, prevent human suffering, or mitigate great

property damage. Immediate response is situation-specific and may

or may not be associated with a declared or undeclared disaster, civil

emergency, or attack.

CS operations are divided into three broad categories of domestic

emergencies, designated law enforcement support, and other

activities, based on the CS definition. These categories, in many

cases, can overlap or be in effect simultaneously, depending on the

particular circumstances of the incident. Under the categories, there

are broad types of CS missions which are discussed below.

DOD support in a domestic disaster or a Presidential declaration

of emergency is in support of the primary or coordinating

agency(ies). Military commanders and responsible DOD civilians

may, under certain conditions, respond under immediate response

authority in order to save lives, prevent suffering, and mitigate

great property damage under imminently serious conditions.

Without a disaster declaration, the President may also direct DOD

to support the response to a disaster or emergency for a period

not to exceed 10 days.

DOD support and/or assistance in restoring public health and services,

and civil order may include augmentation of local first responders and

equipment. It may include law enforcement support, continuity of

operations/continuity of government measures to restore essential

government services, protect public health and safety, and provide

emergency relief to affected governments, businesses, and individuals.

Responses occur under the primary jurisdiction of the affected state

and local government, and the Federal government provides assistance

when required. When situations are beyond the capability of the state,

the governor requests federal assistance through the President.

Special events are categorized by the DHS Special Events Working

Group (SEWG). Usually, other military operations will have priority

over these missions, unless directed otherwise by the SecDef. These

events will be assigned a priority by the SEWG and will normally be

monitored by the combatant command responsible for the area of

responsibility in which they are conducted. National special security

event (NSSE) is a designation given to certain special events that, by

virtue of their political, economic, social, or religious significance, may

be the target of terrorism or other criminal activity. The Secretary of

Disasters and Declared

Emergencies.

Support and/or Restore

Public Health and

Services, and Civil Order.

National Special Security

Events.

Categories and Types of Civil Support Operations
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Executive Summary

Homeland Security, after consultation with the Homeland Security

Council, shall be responsible for designating special events as

NSSEs.

Periodic planned support is conducted to enhance civil military relations

within local communities. Military involvement could include: sensitive

support operations; military training exchanges; community relations;

military laboratory support and or testing and evaluation in DOD

facilities; military working dog support; support provided to the US

Secret Service; Civil Air Patrol/Air Force Auxiliary support; aerial

damage assessment; and, civilian critical infrastructure protection.

This publication provides overarching guidelines and principles

to assist commanders and their staffs in planning and conducting

joint CS operations.

Periodic Planned

Support.

CONCLUSION
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Executive Summary

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Intentionally Blank
CHAPTER I

FRAMEWORK

I-1

“This government will learn the lessons of Hurricane Katrina. We are going to

review every action and make necessary changes so that we are better prepared

for any challenge of nature, or act of evil men, that could threaten our people.”

President George W. Bush

Jackson Square, New Orleans, Louisiana,

September 15, 2005

1. General

a. A secure US homeland is the Nation’s first priority, and is a fundamental aspect of the

national military strategy. It is also essential to America’s ability to project power, sustain a

global military presence, and honor its global security commitments. The military will continue

to play a vital role in securing the homeland through the execution of homeland defense (HD)

and civil support (CS) missions. CS capabilities are derived from Department of Defense (DOD)

warfighting capabilities that could be applied to foreign/domestic assistance or law enforcement

support missions. DOD support of civil authorities such as the Department of State (DOS) for

foreign assistance is addressed in another joint publication (JP). CS focuses in a domestic

context, but extends beyond the standard domestic definition.

b. DOD contributes to homeland security (HS) by conducting HD operations overseas and

in the approaches to the US, and by providing CS for disasters and declared emergencies, to

designated law enforcement agencies (LEAs), and to other activities. DOD emergency

preparedness (EP) contributes to HD and CS missions since it includes all measures to be taken

by DOD in advance of an emergency to reduce the loss of life and property and to protect our

nation’s institutions.

2. Homeland Defense, Civil Support, and Homeland Security Framework

a. Threats. The homeland is confronted by a spectrum of threats and hazards. Some can be

difficult to categorize as either a traditional military threat requiring only a DOD response capability or a

purely law enforcement threat requiring a nonmilitary response from the Department of Homeland

Security (DHS), Department of Justice (DOJ), or other civilian agency. For example, a transnational

threat can present a challenge in assigning lead responsibility to a particular agency. The characterization

of a particular threat may, ultimately, rest with the President, but US Government (USG) efforts are ongoing to develop specific protocols and response options that address the coordination, integration, and

responsibilities of the federal agencies in responding to the full spectrum of threats and hazards. These

new strategies, processes, and procedures are emerging out of documents such as the National Strategy

for Maritime Security and National Strategy for Aviation Security, and their respective supporting plans

(e.g., Maritime Operational Threat Response [MOTR] and Aviation Operational Threat Response

Plans). These processes aid both the warfighter and civil authorities in identifying which agency or

agencies are best suited to achieve the USG’s desired outcome given the unique circumstances of the

event.
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JP 3-28

b. Homeland Security. HS, as defined in the National Strategy for Homeland Security (NSHS),

is a concerted national effort to prevent terrorist acts within the United States, reduce America’s

vulnerabilities to terrorism, and minimize the damage and recover from attacks that do occur. However,

the NSHS addresses HS beyond this definition and includes law enforcement, chemical, biological,

radiological, nuclear, and high-yield explosives consequence management (CBRNE CM), and disaster

preparedness and relief missions. Either DHS or DOJ will usually be the federal agency with lead

responsibility, supported by DOD when requested. The NSHS addresses a very specific and uniquely

challenging threat — terrorism against the United States — and provides a comprehensive framework

for organizing the efforts of federal, state, tribal, local, and private organizations whose primary functions

are often unrelated to national security. The NSHS complements the National Security Strategy (NSS)

of the United States and provides a framework for creating and seizing opportunities that strengthen our

security and prosperity. The Secretary of Homeland Security is responsible for ensuring the preparedness

of the Nation to prevent, respond to, and recover from threatened and actual domestic terrorist attacks,

non-terrorist security threats (e.g., drug and migrant smuggling), major disasters, and other emergencies.

CIVIL AUTHORITIES

“Those elected and appointed officers and employees who constitute the

government of the United States, the governments of the 50 states, the

District of Columbia, the Commonwealth of Puerto Rico, United States

possessions and territories, and political subdivisions thereof.”

c. DOD Role in Homeland Security. DOD protects the homeland through two distinct but

interrelated missions — HD and CS. While these missions are distinct, some department roles and

responsibilities overlap, and operations require extensive coordination between lead and supporting

agencies. Figure I-1 illustrates a notional relationship between HD, CS, and HS with examples of the

types of operations that can take place for each mission. The HD, CS, and HS missions are separate,

but have areas where roles and responsibilities may overlap and/or lead and supporting roles may

transition between organizations. DOD serves as the federal department with lead responsibility for

HD, which may be executed by DOD alone (e.g., ballistic missile defense) or include support provided

to DOD by other agencies such as DHS or Department of Transportation (e.g., Federal Aviation

Administration support to DOD/North American Aerospace Defense Command). CS is the overarching

term for DOD’s support to US civil authorities (DHS or other agency) for domestic emergencies and

for designated law enforcement and other activities. HD and CS operations may occur in parallel and

require extensive integration and synchronization. In addition, operations may transition from HD to CS

to HS and vice versa (e.g., maritime security) with the lead depending on the situation (annotated by the

arrows in Figure I-2) and USG’s desired outcome. While the lead may transition, a single agency

has the lead at any given time for a particular activity. However, in the areas of overlapping

responsibility, the designation of federal agency with lead responsibility may not be predetermined. In

time-critical situations, on-scene leaders are empowered to conduct appropriate operations in response

to a particular threat. For example, the MOTR protocols provide guidance for maritime security which

can transition between HD, CS, or HS.
I-3

Figure I-1. Notional Relationship Between Homeland Defense, Civil Support, and Homeland Security Missions

NOTIONAL RELATIONSHIP BETWEEN HOMELAND DEFENSE, CIVIL SUP

AND HOMELAND SECURITY MISSIONS

DOD Lead Role DOD Supporting Role

CBRNE Chemical, Biological, R

Nuclear and High-Yield 

FAA Federal Aviation AdminNORAD North American Aerosp

Command

Discrete activities that can take place as homelanddefense, civil support, or homeland security operations

123456789

10

Ballistic Missile DefenseDOD Support for Disaster RelEnforcement ActivitiesCBRNE Consequence ManageAirport SecurityMaritime SecurityFAA Support to DOD (NORADNational Guard Title 32 US CoNational Guard Title 10 US CoEmergency PreparednessDOD / Community Relations

HOMELAND SECURITY

4

HOMELAND

DEFENSE

CIVIL SUPPORT

5

9

8

6 2

7

10

1

3
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d. Emergency Preparedness. EP is considered a part of DOD’s overall preparedness activities.

It spans HD, CS, and HS and includes DOD’s lead, support, and enabling functions. Mobile command

centers and DOD aviation support to the US Secret Service are just two examples of how DOD

prepares for and supports EP operations.

For further information on the overarching Homeland Security framework, see JP 3-26, Homeland

Security.

3. The Civil Support Operational Framework

a. The DOD organizational construct to support the HS mission, through its warfighting and CS

missions, is characterized by: prepare, detect, deter, prevent, defend, respond and recover. While

DOD’s CS focus is on preparation and response, DOD may provide critical support to US civil authorities

in all areas of this framework. The following paragraphs address the CS focus under the HS framework.

(1) Prepare. DOD prepares to respond across a range of activities by developing, sustaining,

and improving operational capabilities to prevent, protect against, respond to, and recover from domestic

Figure I-2. Relationships for Homeland Defense and Civil Support

RELATIONSHIPS FOR HOMELAND DEFENSE

AND CIVIL SUPPORT

Lead for

Homeland

Defense

Lead for Civil

Support

IN SUPPORT OF

OTHERS

CIVIL SUPPORT

HOMELAND DEFENSE

SUPPORTED BY

OTHERS

Department

of Defense

Other

Federal

Agencies
I-5

Framework

incidents, whether HD, HS, or CS. It is a continuous process to identify threats, determine vulnerabilities,

and identify required resources.

(2) Detect. Although DOD does maintain a statutory responsibility under Title 10 US Code

(USC), Section 124 to serve as the lead agency of the USG for the detection and monitoring of aerial

and maritime transit of illegal drugs into the United States, DOD supports civil authorities in the detection

of all transnational threats desiring entry to the homeland by land, maritime, or air conveyance. DOD

routinely supports federal LEAs’ efforts to detect transnational threats on all borders using unique military

capabilities. However, a federal LEA will always be the primary agency for efforts to detect transnational

threats along the borders.

(3) Deter. DOD may support civil authorities’ efforts to deter threats to the homeland.

Overt support to DHS or other federal and state LEAs may have a deliberate or inadvertent deterrence

effect. DOD conducts missions in support of, and at the request of, LEAs to deter threats along the

borders and within the homeland. The mere presence of DOD assets operating in support of law

enforcement along the borders or in the airspace adjacent to our public lands can deter transnational

threat actors such as foreign terrorist organizations, drug trafficking organizations, and alien smuggling

organizations from attempting entry into the United States or from pursuing illegal cultivation or processing

of narcotics on our public lands. Even the presence of DOD engineers on the southwest border —

whose principal engineering support task might be to construct roads or bridges to enhance LEA

mobility on the border — can deter illegal trafficking in that area.

(4) Prevent. In certain cases DOD performs CS to assist LEAs to prevent threats to the

homeland. Ideally, this will occur as far forward as possible, prior to any threat reaching the homeland.

An example in the Commander, US Northern Command’s (CDRUSNORTHCOM’s) area of

responsibility (AOR) is DOD’s support to LEAs as members of the US country teams in Mexico and

Canada. Primarily through intelligence analytical support, DOD is assisting supported LEA by detecting

threats, which can then be prevented through interdiction by US and partner nation law enforcement

and/or military assets. DOD also supports civil authorities’ efforts to prevent threats by providing similar

analytical support to key law enforcement centers within the continental US (CONUS) such as the joint

terrorism task forces, field intelligence groups, and high intensity drug trafficking areas headquarters.

The Civil Air Patrol (CAP) (as Air Force Auxiliary) assists the US Customs Service, the Drug Enforcement

Administration, and the US Forest Service in their counterdrug (CD) efforts by flying air reconnaissance

and providing transportation and communications support.

(5) Defend. Both passive and active actions may be taken to weaken or stop a threat.

Passive actions may include creating barriers, obstacles, or hardened sites. Active measures would be

shorter-range, close or immediate in time. Defend also includes individual, crew, and facility protective

measures to block out damage from an incident, to include taking medicines and antidotes promptly

upon being attacked.

(6) Respond and Recover. Response, as it relates to CS activities, is the ability to rapidly

and effectively support civil authorities in providing appropriate support to LEAs, and assistance in

managing the consequences of disasters and catastrophes, including natural, man-made, or terrorist

incidents. DOD provides CS as directed by the President or Secretary of Defense (SecDef) to provide
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support to civil authorities. DOD provides CS in order to reduce suffering, save lives, prevent or

mitigate the destruction of property, manage the consequences of an attack or a disaster, or prevent

terrorist incidents by supporting law enforcement. Civil authorities are more likely to request DOD

support when civilian response capabilities are overwhelmed or exhausted, or when DOD’s unique

capabilities and operations can offer an essential, decisive, time-critical contribution in order to achieve

the USG’s desired outcome to threat or incident.

b. Although the leads for HD (DOD) and CS (e.g., DHS and DOJ) are different, the distinction

between the two operational activities may not easily be defined or discerned. There may be cases

where HD and CS events take place concurrently, or the main threat and therefore the agency lead,

transitions from one agency to the other. Therefore, the need to establish workable and effective

interagency relationships and partnerships, in advance of a crisis or contingency, is critical. For example,

DOD may support DHS activities in the maritime domain, requiring continuous coordination between

department-level, operational, and tactical organizations conducting operations. The MOTR Plan acts

to mitigate overlap issues between HD and HS activities by providing a method for interagency integration.

To fully develop and verify such relationships and partnerships, an active interagency coordination

program, backed-up by annual joint and interagency exercises or operations, is required.

4. Homeland Security Directive

Homeland Security Presidential Directive (HSPD)-5, Management of Domestic Incidents, sets

forth roles and responsibilities of the Federal government for domestic incident management by establishing

a single incident management system.

a. National Response Plan. The National Response Plan (NRP) was a result of HSPD-5: a

single, comprehensive approach to domestic incident management built on the template of National

Incident Management System (NIMS) (see below). The NRP is an all-hazards plan that provides the

structure and mechanisms for national-level policy and operational direction for incident management to

ensure timely and effective federal support. The NRP is applicable to all federal departments and

agencies that have primary jurisdiction for or participate in operations requiring coordinated federal

response. The NRP identifies how federal departments and agencies will respond to state, tribal, and/

or local requests for assistance (RFAs). The NRP and the NIMS are designed to improve the Nation’s

incident management capabilities and overall efficiency. During incidents of national significance or other

incidents requiring significant federal support, the NRP (based on the NIMS) works to integrate the

capabilities and resources of various governmental jurisdictions, incident management and emergency

response disciplines, nongovernmental organizations (NGOs), and the private sector into a cohesive,

coordinated, and seamless national framework for incident management. A basic premise of both the

NIMS and the NRP is that incidents are generally handled at the lowest jurisdictional level possible. In

the vast majority of incidents, local resources and local mutual aid will provide the first line of emergency

response and incident management.

(1) The NRP provides the framework for most, but not all DOD support to civil authorities

and describes the policies, planning assumptions, concept of operations, response and recovery actions,

and responsibilities for 31 federal departments and agencies, and the American Red Cross (ARC).

DHS is the executive agent for the NRP coordination, management and maintenance. The NRP is
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Framework

always in effect and is supported by all departments and agencies within the Federal government.

Actions range in scope from ongoing situational reporting and analysis through the National Operations

Center (NOC), to the implementation of NRP incident annexes and other supplemental federal contingency

plans, to full implementation of all relevant NRP coordination mechanisms outlined in the base plan.

Some departments and agencies have larger roles due to the amount of resources they can bring to bear.

DOD has a large role in supporting the NRP. The NRP applies to all incidents requiring a coordinated

federal response as part of an appropriate combination of federal, state, local, tribal, private sector, and

nongovernmental entities. CS operations may occur after a Presidential declaration of a major disaster

or an emergency. However, such a declaration is not mandatory to initiate DOD support operations.

CS operations are consistent with the NRP in that they aim to supplement the efforts and resources of

other federal agencies in support of state, local, tribal governments, and voluntary organizations. Unless

otherwise directed by the President, the US military will provide CS in support of another

federal agency that is coordinating the federal response.

(2) The NRP is coordinated and managed by the Federal Emergency Management

Agency (FEMA). FEMA is an operational component of DHS.

(3) The overall coordination of federal incident management activities is executed

through the Secretary of Homeland Security. The Secretary of Homeland Security utilizes

multiagency structures at the headquarters, regional, and field levels to coordinate efforts and

provide appropriate support to the incident command structure. The NRP establishes a NOC

and its component elements, the National Response Coordination Center (NRCC), the Incident Advisory

Council, the Domestic Readiness Group, and the designation of a principal federal official (PFO) who

may be appointed to represent the Secretary of Homeland Security at the local incident site. At the

federal headquarters level, incident information-sharing, operational planning, and deployment of federal

resources are coordinated by the NOC.

(4) The NRP contains 3 types of annexes. These annexes are: emergency support function

(ESF) annexes; support annexes; and incident annexes. Each annex identifies and describes missions,

policies, structures, and responsibilities of federal agencies for providing resource and operational support.

b. National Incident Management System

(1) The NIMS provides the template for incident management regardless of size, scope, or

cause of the event. It is a consistent doctrinal framework for incident management at all jurisdictional

levels. It includes a core set of concepts, principles, terminology, and technologies covering the incident

command system; multiagency coordination systems; unified command; training; identification and

management of resources (including systems for classifying types of resources); qualifications and

certification; and the collection, tracking, and reporting of incident information and incident resources.

(2) The incident command system (ICS), multiagency coordination systems, and public

information systems are the fundamental elements of the NIMS that direct incident operations; acquire,

coordinate, and deliver resources to incident sites; and share information about the incident with the

public, respectively.
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(3) When both local and state resources and capabilities are overwhelmed, governors may

request federal assistance; however, the NIMS is designed so that local jurisdictional authorities retain

command, control, and authority over response. Adhering to the NIMS will allow local agencies to

better utilize incoming coordinated resources.

A detailed discussion of the NRP and NIMS is contained in Appendix D, “Overview of the

National Response Plan and National Incident Management System.”

5. Incident Management

The definition of the term “incident,” as used in this publication, is provided below:

INCIDENT

“An occurrence, caused by either human action or natural phenomena, that

requires action to prevent or minimize loss of life or damage to property

and/or natural resources.”

SOURCE: Department of Homeland Security Lexicon

September 13, 2006

a. Responsibilities

(1) The Federal government provides assistance when requested. When situations are beyond

the capability of the state, the governor requests federal assistance from the President. The President

may also direct the Federal government to provide supplemental assistance to state and local governments

to alleviate the suffering and damage resulting from disasters or emergencies. One of the key objectives

of the Department of Defense Strategy for Homeland Defense and Civil Support is to support civil

authorities in minimizing the damage and recovering from domestic chemical, biological, radiological,

nuclear, and high-yield explosive (CBRNE) mass casualty attacks. The strategy affirms DOD’s primary

responsibility for protecting the US homeland from attack, and establishes that the second priority is to

support civil authorities in minimizing the damage and recovering from domestic CBRNE mass casualty

attacks.

(2) Emergencies, disasters, and terrorist attacks may be of national importance, but they

always occur locally. The initial response to such circumstances is by citizens and nongovernmental

entities, local authorities, and state governments. Law enforcement entities have critical authorities and

responsibilities concerning potential and actual terrorist attacks and incidents. As affirmed and clarified

by The Homeland Security Act of 2002: primary responsibility for investigating and prosecuting acts of

terrorism shall be vested not in DHS, but rather in federal, state, and local LEAs with jurisdiction over

the acts in question. At the federal level, the principal law enforcement investigation and prosecution

agency is the DOJ.

(3) Incidents are managed at the lowest level possible. Federal support is provided in response

to requests from state or local officials through the state coordinating officer (SCO) to the federal

coordinating officer (FCO). The FCO coordinates for DOD support through the defense coordinating
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Framework

officer (DCO). DOD may provide support to DHS which has the lead in managing the federal response

to a domestic incident. Domestically, DHS has responsibility for overall incident management and the

NRP provides the framework for federal interaction with state, local, and tribal governments; the private

sector; and NGOs in the context of domestic incident prevention, preparedness, response, and recovery

activities. DOD support to this response will be initiated through a formal RFA or mission assignment

process.

b. Requets for Assistance. Initial requests for assistance are made to the Office of the Secretary

of Defense (OSD), Executive Secretariat. If approved by the SecDef, DOD designates a supported

combatant commander (CCDR) for the response. The supported CCDR determines the appropriate

level of command and control for each response and usually directs a senior military officer to deploy to

the incident site. The DCO serves as DOD’s single point of contact in the joint field office (JFO).

Requests will be coordinated and processed through the DCO with the exception of requests for United

States Army Corps of Engineers (USACE) support, National Guard (NG) forces operating in state

active duty or Title 32 USC status (i.e., not in federal service), or, in some circumstances, DOD forces

in support of the Federal Bureau of Investigation (FBI).

c. Crisis and Consequence Management. The HSPD-5 and the NRP adopt the concept of

incident management as including both consequence management (CM) and crisis management

(CrM), while DOD continues to categorize CS operations using these two terms. The application

of CrM and CM is unique and separate in the context of planning and conducting military operations.

Non-DOD actors, including local civil authorities and first responders, are generally not familiar

with US military terms, definitions, and doctrine. When working with non-DOD actors/partners,

especially in an emergency situation, clear, effective, and mutually understandable communication

is essential. DOD elements will be able to work much more seamlessly, efficiently, and productively

by employing operational concepts and terms that other departments, agencies, and authorities

already understand. The main sources of these concepts and language include the NRP, NIMS,

and other federal and national standards.

(1) CrM is predominantly a law enforcement response, normally executed under federal law.

DHS is responsible for preventing terrorist attacks, reducing the vulnerability of the United States to

terrorism, minimizing the damage, and assisting in the recovery, from terrorist attacks.

(2) The NRP defines CM as an emergency management function which includes measures

to protect public health and safety, restore essential government services, and provide emergency relief

to governments, businesses, and individuals affected by the consequences of terrorism.

(3) Historically, much of DOD’s CS mission set has involved CM operations. This is due to

legal restrictions which generally preclude DOD from participating in CrM law enforcement investigations

and operations. The Space Shuttle disaster which involved a single Service task force (TF), and

Hurricane Katrina which involved a large joint task force (JTF) were both DOD CM operations in

support of another agency. In a catastrophic situation, if significant DOD forces are requested, DOD

would likely provide a JTF or multiple JTFs, which command and control (C2) Title 10 USC forces that

are conducting CS operations in support of civil authorities.
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Intentionally Blank
CHAPTER II

DEPARTMENT OF DEFENSE OPERATIONAL ENVIRONMENT

II-1

“Although the national response to Hurricane Katrina was the largest of its kind in

US history, the delay of several days in providing large scale assistance to New

Orleans — and the initial absence of a unified strategy for dealing with the disaster

— contributed to the suffering of the people left in the city and caused considerable

anguish throughout the country. When a catastrophic event occurs, the effort

required of policemen, firemen, emergency management workers, and other first

responders skyrockets. However, at the point of impact these first responders

often become victims or lose the capability to effectively respond.”

Hurricane Katrina, National Response to Catastrophic Events:

Applied Lessons for Consequence Management

Joint Center for Operational Analysis

United States Joint Forces Command

21 August 2006

1. General

a. Introducing federal forces into an otherwise civil response situation requires a clear

understanding of authorities and their limits. Because the public, media, and perhaps local and

state officials, may not clearly understand Constitutional limits, expectations must be managed

and communicated. This distinction is especially important because both federal and NG forces

wear the same uniform. Military units tasked to support civil authorities during domestic disasters

enable rapid and effective response operations that limit loss of life, mitigate suffering, and

curtail further significant property damage. The challenge remains integrating military and civil

capabilities within a disaster stricken operating environment with little intact infrastructure while

urgently and efficiently executing relief operations.

b. Authority over and control of DOD forces/capabilities shall be maintained by the

President, as Commander in Chief, through the SecDef and the chain of command as established

by law.

c. When emergency conditions dictate, and when time does not permit approval from higher

headquarters, local military commanders and responsible DOD component officials are authorized

to respond to requests from local authorities and to initiate immediate response actions to save

lives, prevent human suffering, or mitigate great property damage under imminently serious

conditions. Higher headquarters must be informed promptly.

d. DOD resources are normally used only when state and local resources are overwhelmed and/

or non-DOD resources of the Federal government are insufficient or unable to meet the requirements of

local and state civil authorities.

e. All DOD actions shall be performed consistent with the Posse Comitatus Act (PCA) (Title 18

USC, Section 1385), the Enforcement of the Laws to Restore Public Order (Title 10 USC, Chapter
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JP 3-28

15), and Department of Defense Directive (DODD) 5525.5, DOD Cooperation with Civilian Law

Enforcement Officials.

2. Requests for Assistance

a. General. Requests for DOD assistance may occur under Stafford Act or non-Stafford Act

conditions. The Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law 93-288)

(Title 42 USC, Section 5121), authorizes the Federal government to help state and local governments

alleviate the suffering and damage caused by disasters. A non-Stafford Act incident is essentially all of the

other emergencies that occur each year and do not necessarily overwhelm state and local authorities.

However, the NRP recognizes that state and local governments experiencing a non-Stafford Act event

would benefit from federal assistance and coordination. For instance, while Hurricane Katrina was an

incident of national significance, an accidental airline crash may not be an incident of national significance.

However, an airline crash may create circumstances for which state and local authorities may benefit

from the use of federal resources.

(1) At the regional level, interagency resource coordination and multiagency incident support

are provided by the regional response coordination center (RRCC). The RRCC coordinates regional

response efforts, establishes federal priorities, and implements local federal program support until a JFO

is established.

(2) The Secretary of Homeland Security is responsible for overall coordination of Federal

Stafford and non-Stafford incident management activities. An FCO is appointed to manage and

coordinate federal resource support activities related to Stafford Act disasters and emergencies.

(3) When requested, DOD normally will deploy a regionally-assigned DCO to the JFO in

order to assist the FCO in coordinating DOD support, as required. A defense coordinating element

(DCE) consisting of appropriate staff elements and military liaison officers (LNOs) may also be requested

to assist the DCO in facilitating and coordinating potential DOD support.

b. Stafford Act Assistance. A Stafford Act incident is one in which state and local authorities

declare a state of emergency and request federal assistance. This type of emergency is an incident of

national significance for which the Stafford Act establishes programs and processes for the Federal

government to provide major disaster and emergency assistance to states, local governments, tribal

nations, individuals, and qualified private nonprofit organizations.

(1) The Robert T. Stafford Disaster Relief and Emergency Assistance Act authorizes the

Federal government to establish programs and processes for the Federal government to provide major

disaster and emergency assistance to states, local governments, tribal nations, individuals, and qualified

private nonprofit organizations.

(2) In some circumstances, Stafford Act requests may originate from the state emergency

operations center (EOC), FEMA RRCC, or the FEMA NRCC and pass directly to the Joint Director

of Military Support (JDOMS) or the DOD Office of the Executive Secretary, rather than routing though

a DCO. These RFAs are processed the same as non-Stafford Act requests, with JDOMS and the
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Department of Defense Operational Environment

operational headquarters conducting parallel coordination and providing a recommendation to Assistant

Secretary of Defense for Homeland Defense and Americas’ Security Affairs (ASD[HD&ASA]) and

the SecDef for approval or disapproval. In all these cases, the supported CCDR and the affected DCO

must be notified to limit redundant coordination of resources.

c. Non-Stafford Act Assistance. A non-Stafford Act incident is essentially all of the other

emergencies that occur each year and do not necessarily overwhelm state and local authorities, and

where the event would benefit from federal assistance and coordination.

(1) In non-Stafford Act situations, a federal department or agency acting under its own authority

may request the assistance of the Secretary of Homeland Security to obtain support from other federal

departments and agencies. DHS may designate a federal resource coordinator (FRC). Support in those

situations may be requested and reimbursed under the authority of the Economy Act. DHS may establish

a JFO for “federal-to-federal” support when an incident is managed by one or more federal agencies.

The Secretary of Homeland Security is represented by the PFO and/or the FCO. The PFO/ FCO is

normally positioned at and coordinates through the JFO.

(2) In non-Stafford Act requests, the RFAs are processed with JDOMS and the operational

headquarters conducting parallel coordination and providing a recommendation to ASD(HD&ASA)

and the SecDef for approval or disapproval. In all these cases, the supported CCDR and the affected

DCO must be notified to limit redundant coordination of resources.

d. Request for Assistance Process. Federal agencies or state governors request DOD capabilities

to support their emergency response efforts by using a formal RFA process. How DOD handles RFAs

depends on various factors, such as: Stafford or non-Stafford Act situation, urgency of the incident,

establishment of a JFO, if a DCO or JTF has been appointed, and originator of the request (incident

command, state, regional, or national). It is important to note that not all CS is provided via the RFA

process. Other processes for obtaining and/or providing support are covered in more detail in Chapter

III, “Operations.”

(1) Civil authorities may request other CS activities in writing through various means established

by the appropriate DOD policy documents. For example, support for military fly-overs may be requested

using DD Form 2535 as described in DODD 5410.18, Public Affairs Community Relations Policy.

(2) In general, the RFA process is conducted as shown in Figure II-1. The FCO at the

incident site receives RFAs from civil authorities and submits them to the Office of the Executive Secretary

of the Department of Defense, who forwards them to the ASD(HD&ASA) and to the JDOMS for

validation and order processing, respectively. When a DCO is at the incident site, RFAs are submitted

directly to ASD(HD&ASA). Once the SecDef approves the request, an order is issued to combatant

commands, Services, and/or agencies to accomplish the mission. The decision process differs significantly

for approving Stafford and non-Stafford RFAs (see Figure II-2). Requests are validated at all levels

within the chain of command. JDOMS prepares an order and coordinates with necessary force providers,

legal counsel, and ASD(HD&ASA) to ensure asset deconfliction and recommendation concurrence.

DOD evaluates all requests by US civil authorities for military assistance against six established criteria,

including:
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Chapter II

JP 3-28

(a) Legality. Is the support in compliance with laws, Presidential directives?

(b) Lethality. Is use of lethal force by or against DOD personnel likely or expected?

(c) Risk. Safety of DOD forces. Can the request be met safely, or can concerns be

mitigated by equipment or training?

(d) Cost. Who pays, and what is the impact on DOD budget?

(e) Appropriateness. Is the requested mission in the interest of DOD to conduct? Who

normally performs and is best suited to fill the request?

(f) Readiness. What is the impact on DOD’s ability to perform its primary mission?

Figure II-1. Request for Assistance

REQUEST FOR ASSISTANCE

DOD

Executive Secretary

SecDef

ASD(HD&ASA) JDOMS

Validation Orders

Combatant Commanders

Services/Agencies

Evaluation Criteria

Legality

Lethality

Risk

Cost

Readiness

Appropriateness

RFA w/o DCO

RFA w/DCO

Coordinaton/

Approval

RFA w/o DCO

RFA w/DCO

Info

ASD(HD&ASA) Assistant Secretary

of Defense for Homeland

Defense and Americas’

Security Affairs

JDOMS Joint Director of Military

Support

DCO Defense Coordinating Officer

DOD Department of Defense

JFO Joint Field Office

RFA Request for Assistance

SecDef Secretary of Defense

REQUESTOR

Federal Department or

Agency

DCO





On Behalf of State's

Request

Own Requirements





On Behalf of State

Request through JFO

On Behalf of Federal

Agency
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Department of Defense Operational Environment

(3) The DCO and supporting DCE assigned to the FEMA regional office may function as

part of the RRCC or the JFO (when established). Upon receipt of the RFA, the DCO evaluates the

request to determine if it meets DOD’s screening criteria using the same criteria shown above.

Figure II-2. Request for Assistance Process Decision Matrix

REQUEST FOR ASSISTANCE PROCESS

DECISION MATRIX

EXECUTE ORDER

Designates supporting and

supported commands and

command and control

relationships.

Tasks commands, Services,

and DOD agencies to

deploy and execute the

LEGEND

ASD(HD&ASA) - Assistant Secretary of Defense for

Homeland Defense and Americas’ Security Affairs

DCO - Defense Coordinating Officer

DOD - Department of Defense

EMAC - Emergency Management Assistance Compact

ExecSec - Executive Secretary

FCO - Federal Coordinating Officer

JDOMS - Joint Director of Military Support

NGB - National Guard Bureau

NIFC - National Interagency Fire Center

NTSB - National Transportation Safety Board

RFA - Request for Assistance

SecDef - Secretary of Defense

USACE - US Army Corps of Engineers

USJFCOM - US Joint Forces Command

USNORTHCOM - US Northern Command

NG - National Guard

Requester obtains sponsorship from the

primary agency who passes RFA through

DCO to JDOMS or DOD ExecSec under

terms of the Economy Act

START START

Non-Stafford Act Requests

Lead

Agency

Coordinate with Services,

USJFCOM, DOD, agencies,

and combatant commands

Pass to ASD(HD&ASA)

JDOMS

Combatant

Commands

ExecSec

Evaluate and

forward to JDOMS

and ASD (HD&ASA)

ASD(HD&ASA)

Coordinate with

NGB

Review and pass

to SecDef

SecDef

Approve

Deny request

Return to

Agency

NO

Coordinate

Common to all RFA

Non-Stafford Path

Stafford Act RFA

Cancel

NO

NO

YES

NO

Dept of Homeland Security

Department of Justice

Department of State

Dept of Health & Human Services

US Capitol Police

Others

NTSB

NIFC

Immediate

Response?

YES

YES USACE or

NG & EMAC

fill?

Agency

or FCO the

requester?

NO

YES

roper DOD

mission

P

?

START

Stafford Act Requests

(Incident Anticipated or Occurs)

DOD Assets

Service Chief Commands

USNORTHCOM Components

Evaluate RFA, conduct

mission analysis.

Coordinate with

stakeholders, recommend

forces.

Forward to JDOMS.

Support/

Report

Support

Support

YES
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(4) The DCO should ensure the RFA is readily understandable and clearly describes the

requirement and necessary support. Agencies should not make requests for specific capabilities, as they

may not be available within DOD at the time and a similar capability may be able to satisfactorily provide

the requested support. If the RFA does request a specific capability, the DCO, with the support of the

DCE, should coordinate with the requesting agency and recommend appropriate language to fulfill the

request on a timely basis. If the DCO determines the RFA does not meet the evaluation criteria or is

unable to support the request, the RFA should be returned to the requesting agency with an explanation

as to why it is not being supported.

(5) After the DCO validates the RFA, a copy of the RFA is forwarded to the supported

headquarters’ operations center along with a recommendation for action if the requested support has

been previously approved, or, to be forwarded to the JDOMS and ASD(HD&ASA) for assessment

and approval/disapproval. This recommendation is also provided to the FCO who will ultimately decide

if the request must be forwarded to the RRCC and NRCC, as required.

(6) The DCO and DCE will coordinate with the NG joint force headquarters (JFHQ) or

state JTF headquarters element and federal military operational headquarters (JTF, contingency support

group, operational command post, joint force commander [JFC], etc.), supporting the response effort

to determine if non-federalized and federal military forces already deployed are capable and available to

provide the assistance requested. The requested support should be within the scope of the original

mission statement, as well as cost allocations. Upon validation and if approved by SecDef, if forces are

available, and the RFA is going to be approved, they may be directed to immediately provide the

requested support while the RFA is being processed through the operational headquarters to JDOMS.

Normally JDOMS will coordinate the RFA with the supported combatant command, supporting

combatant commands, Military Departments and applicable combat support agencies. Once coordination

is complete, JDOMS sends the RFA to ASD(HD&ASA) where it undergoes a final review and, if

recommended, the action is coordinated with the National Guard Bureau (NGB) to ensure that there is

no duplication of effort between them and the Active Component (AC). The ASD(HD&ASA) then

passes the RFA to the SecDef for decision (a separate execute order (EXORD) will not be issued for

this).

(7) In some circumstances, Stafford Act requests may originate from the state emergency

operations center (EOC), FEMA RRCC, or the FEMA NRCC and pass directly to the JDOMS or

the DOD Office of the Executive Secretary, rather than routing though a DCO. These RFAs are

processed the same as non-Stafford Act requests, with JDOMS and the operational headquarters

conducting parallel coordination and providing a recommendation to ASD(HD&ASA) and the SecDef

for approval or disapproval. In all these cases, the supported CCDR and the affected DCO must be

notified to limit redundant coordination of resources.

(8) Upon SecDef approval, the JDOMS releases an EXORD to designate supported and

supporting CCDRs, and to task force providers to provide the necessary support.

(9) The operational headquarters will provide a supporting operation order (OPORD),

implementing a concept plan (CONPLAN), if available, and establish command relationships to provide

task, purpose, and coordinating instructions to the supporting force.
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Department of Defense Operational Environment

(10) Since CS missions may involve lifesaving responses, this process will be rapidly executed

to expedite the prompt movement of forces and support. DOD cannot provide support without SecDef

approval of an official request from state or federal agency or direction from the President, or unless

specifically authorized in existing policy or regulation.

(11) If a disaster is of such proportions to generate mass casualties in need of evacuation,

DOD supports the primary agency(ies) for this function under the National Disaster Medical System

(NDMS) (once the NDMS has been activated and an official request for patient evacuation has been

submitted by proper state authorities).

(12) The CCDRs responsible for CS (CDRUSNORTHCOM; Commander, US Pacific

Command [CDRUSPACOM]; and Commander, US Southern Command [CDRUSSOUTHCOM])

incorporate plans for CS by task organizing their commands to accomplish CS missions as well as other

assigned missions. DOD is a signatory to numerous response plans as well as various memoranda of

understanding and memoranda of agreement with other agencies; therefore, DOD may play a critical

role in CS and may be relied upon by many agencies.

(13) The response measures taken by DOD will be in accordance with (IAW) the unmet

demands of the incident, its capabilities, current laws, Presidential directives, executive orders (EOs),

and DOD policies, directives, and orders.

3. Immediate Response

a. Under imminently serious conditions, when time does not permit approval from higher

headquarters, any local military commander, or responsible officials of other DOD components may,

subject to any supplemental direction provided by their higher headquarters, and in response to a

request from civil authorities, provide immediate response to save lives, prevent human suffering, or

mitigate great property damage.

b. In the case of a requirement for an immediate federal response to a serious situation in the

maritime domain, the MOTR plan allows rapid response to short-notice threats and directs interagency

partners to begin coordination activities (MOTR conference calls) at the earliest possible opportunity. It

also provides guidance in predesignating federal agencies with lead responsibilities, clarifying interagency

roles and responsibilities, and establishing protocols and procedures that are utilized for a coordinated

response to achieve the USG’s desired outcome. MOTR lead and supporting roles are developed

from the following criteria:

(1) USG desired outcome.

(2) Agency authorities.

(3) Agency capabilities.

(4) Agency capacities.
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JP 3-28

(5) Magnitude of the threat.

c. Immediate response is situation-specific and may or may not be associated with a declared or

undeclared disaster, civil emergency, or attack.

d. While civilian authorities are marshalling the necessary relief assets to respond to the emergency,

the local military commander, who is ready and capable of rapidly responding on a no-notice basis, can

immediately begin the relief effort following receipt of a RFA. This participation should be of a short

duration, lasting only until sufficient local and state assets arrive on the scene and assume control.

Consequently, immediate response authority is not a blanket authority to provide unlimited military

assistance any time and any where for any length of time.

e. As soon as practical, the military commander, or responsible official of a DOD component or

agency rendering such assistance, shall report the request, the nature of the response, and any other

pertinent information through the chain of command to the National Military Command Center.

4. Roles and Responsibilities

a. The Department of Defense. Principal and supporting DOD participants involved in

the execution of CS missions may include SecDef; ASD(HD&ASA); Assistant Secretary of

Defense for Health Affairs (ASD[HA]); Assistant Secretary of Defense for Reserve Affairs(ASD[RA]);

Assistant Secretary of Defense for Special Operations and Low Intensity Conflict and Interdependent

Capabilities; Chairman of the Joint Chiefs of Staff (CJCS);CDRUSNORTHCOM; CDRUSPACOM;

Commander, US Special Operations Command (CDRUSSOCOM); CDRUSSOUTHCOM;

Commander, US Strategic Command (CDRUSSTRATCOM); Commander, US Transportation

Command (CDRUSTRANSCOM); and Commander, US Joint Forces Command (CDRUSJFCOM).

(1) Secretary of Defense. SecDef has overall authority for DOD and is the President’s

principal advisor on military matters concerning CS. SecDef retains approval authority for the

use of forces, personnel, units, and equipment. SecDef has the primary responsibility within

DOD to provide the overall policy and oversight for CS in the event of a domestic incident.

SecDef retains sole authority to waive reimbursement for DOD assets.

(2) Assistant Secretary of Defense for Homeland Defense and Americas’ Security

Affairs. ASD(HD&ASA) serves as the principal staff assistant and advisor to the Secretary and

Deputy Secretary of Defense and Under Secretary of Defense for Policy on CS matters.

ASD(HD&ASA) coordinates all CS mission matters with other executive departments and federal

agencies. ASD(HD&ASA) ensures that DOD strategy is consistent with and fully supports the

National Strategy for Homeland Security effort. ASD(HD&ASA) assists SecDef in providing

guidance (through the Joint Staff) to CCDRs for supporting civilian LEAs and conducting coordination

with DHS.

(3) Assistant Secretary of Defense for Health Affairs. ASD(HA) is a critical component

in the Services’ activation of the federal coordinating centers (FCCs). FCCs are DOD and Veterans
II-9

Department of Defense Operational Environment

Affairs medical facilities responsible for locating civilian medical facilities willing to provide disaster

support in their geographic location. They are also responsible for arranging the reception and staging of

arriving patients, followed by their distribution to those supporting facilities.

(4) Assistant Secretary of Defense for Reserve Affairs. ASD(RA) is responsible

for monitoring Reserve Component (RC) readiness. ASD(RA) provides policy regarding the

appropriate integration of RC forces into CS response efforts.

(5) Chairman of the Joint Chiefs of Staff. CJCS has numerous responsibilities relating to

CS. These include advising the President and SecDef on operational policies, responsibilities, and

programs; assisting SecDef in implementing operational responses; and translating SecDef guidance

into OPORDs to provide assistance to the federal agency with lead responsibility. CJCS ensures that

CS plans and operations are compatible with other military plans. Within the CS mission, CJCS serves

as the principal military advisor to the President and SecDef in preparing for and responding to CBRNE

incidents, ensures that military planning is accomplished to support the federal agency with lead

responsibility for CrM and CM, and provides strategic guidance to the CCDRs for the conduct of CD

operations. CJCS also assists CCDRs in meeting their operational requirements for providing CS that

has been approved by SecDef.

(6) CDRUSNORTHCOM is responsible for conducting CS operations (including CM

operations) IAW US laws within the established AOR. CDRUSNORTHCOM is also responsible for

the creation and maintenance of plans to provide CS, as directed. Within the US Northern Command

(USNORTHCOM) AOR, CDRUSNORTHCOM is the DOD designated planning agent and the

supported commander for CS missions. USNORTHCOM organizes and executes its missions through

assigned Service components, designated functional components, and subordinate standing JTFs.

(a) Standing Joint Force Headquarters North (SJFHQ-N). A standing joint force

headquarters is a full-time joint C2 element within USNORTHCOM’s headquarters. It provides the

commander with a trained and equipped standing joint C2 capability specifically organized to conduct

planning and develop enhanced situational understanding in support of CS operations in the

USNORTHCOM AOR. When directed by SecDef to conduct a CS mission, CDRUSNORTHCOM

can deploy SJFHQ-N to enable the rapid stand-up of a JTF headquarters.

(b) Joint Task Force Civil Support (JTF-CS). JTF-CS is a standing JTF assigned

to CDRUSNORTHCOM dedicated to planning and integrating DOD domestic CBRNE

consequence management support for incidents or accidents. When directed by SecDef,

CDRUSNORTHCOM deploys JTF-CS as a CBRNE CM headquarters to establish C2 of

designated DOD forces at the CBRNE incident site and to provide CS to save lives, prevent

injury, and provide temporary critical life support. If the CBRNE event occurs outside the

USNORTHCOM AOR, JTF-CS may be attached to CDRUSPACOM or CDRUSSOUTHCOM

to provide domestic CBRNE support.

(c) Joint Task Force North (JTF-N). As directed, JTF-N employs military capabilities

to support LEAs and supports interagency synchronization within the USNORTHCOM AOR in order

to deter and prevent transnational threats to the homeland.
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(d) Joint Force Headquarters National Capital Region (JFHQ-NCR).

JFHQ-NCR plans, coordinates, and maintains situational awareness, and as directed, employs

forces for HD and CS in the National Capital Region’s (NCR’s) operational area to safeguard

the Nation’s capital.

(e) Joint Task Force Alaska (JTF-AK). JTF-AK is comprised of forces from Alaskan

Command, a subunified command of US Pacific Command (USPACOM), and is under the operational

control (OPCON) of USNORTHCOM for HD and CS missions to assist federal, state, local, and

tribal authorities within the Alaska joint operations area (JOA).

(f) US Army North (ARNORTH) JTFs. ARNORTH, the Army Service component

command of US Northern Command (USNORTHCOM), has two deployable TFs and dual JTF

capability. The TF/JTFs have the mission to deploy anywhere in the USNORTHCOM AOR for C2 of

Title 10 USC forces in HD and CS missions. Commander, ARNORTH and Commander, US Marine

Forces North have the mission to serve as a joint force land component commander for

USNORTHCOM.

(7) Commander, US Pacific Command. CDRUSPACOM is responsible for CS within

the USPACOM AOR, and is also responsible for the development and maintenance of plans to provide

CS within the assigned AOR. CDRUSPACOM organizes and executes its missions through Joint Task

Force Homeland Defense (JTF-HD), assigned Service components, and designated functional

components. JTF-HD is a standing JTF, established by USPACOM, which synchronizes, plans, and

executes CS missions within the domestic portion of USPACOM AOR.

(8) Commander, US Southern Command. CDRUSSOUTHCOM provides CS within

the AOR to include Puerto Rico and US Virgin Islands. However, CDRUSNORTHCOM will provide

defense support of civil authorities for Puerto Rico and US Virgin Islands.

(9) Commander, US Strategic Command. CDRUSSTRATCOM is responsible for

planning, integrating, and coordinating intelligence, surveillance, and reconnaissance (ISR)

support of strategic and global operations. CDRUSSTRATCOM is also responsible for integrating

and synchronizing DOD-wide efforts in support of the combating weapons of mass destruction

(WMD) mission. CDRUSSTRATCOM also serves as the supporting commander to

USNORTHCOM, USPACOM, and US Southern Command (USSOUTHCOM) for CS missions

within their AORs.

(10) Commander, US Special Operations Command. CDRUSSOCOM serves as a

supporting commander to CDRUSNORTHCOM, CDRUSPACOM, and CDRUSSOUTHCOM

within their respective AORs when requirements exceed a CCDR’s forces’ capabilities and

additional special operations forces expertise is needed. When directed by the President or SecDef,

CDRUSSOCOM conducts special operations and provides special operations forces as required in

support of CS operations. CDRUSSOCOM may also provide LNOs and other assistance to the

supported CCDRs as required.
II-11

Department of Defense Operational Environment

(11) Commander, US Transportation Command. CDRUSTRANSCOM is responsible

for providing transportation and common-user port management for the DOD as well as non-DOD

agencies upon request. United States Transportation Command (USTRANSCOM) coordinates the

efforts of its three subordinate transportation component commands (Air Mobility Command, Military

Sealift Command, and Surface Deployment and Distribution Command) with the supported and supporting

combatant commands. The integration of the intertheater and intratheater movement control systems is

the shared responsibility of USTRANSCOM and the supported combatant command.

(12) Commander, US Joint Forces Command. CDRUSJFCOM’s role in CS is to provide

support to other combatant commands as the joint force provider, joint force integrator, and joint force

trainer.

(13) US Army Corps of Engineers. USACE conducts its emergency response activities

under two basic authorities: the Flood Control and Coastal Emergency Act and the Stafford Disaster

and Emergency Assistance Act. Under the Flood Control and Coastal Emergency Act, USACE

provides disaster preparedness services and advanced planning measures designed to reduce the amount

of damage caused by an impending disaster. Under the Stafford Act, USACE supports DHS/FEMA

in executing the NRP, which calls on 30 federal departments and agencies to provide coordinated

disaster relief and recovery operations. Emergency responses usually involve cooperation with other

federal agencies in support of state and local efforts. Within the NRP, DOD designated USACE as the

primary agency for planning, preparedness, and response under the ESF #3, “Public Works and

Engineering.” ESF #3 provides lifesaving or life protecting assistance to augment efforts of the affected

state(s) and local response efforts following a major or catastrophic disaster. Public works and engineering

support includes technical advice and evaluations, engineering services, construction management and

inspection, emergency contracting, provision of emergency power, emergency repair of wastewater

and solid waste facilities, and real estate support.

b. Reserve Component. NG and reserve forces are collectively referred to as RC forces.

They are also an essential part of the CS operational force when mobilized and consist of the

Army National Guard of the United States (ARNGUS), the US Army Reserve (USAR), the US

Navy Reserve (USNR), the US Marine Corps Reserve (USMCR), the Air National Guard of the

United States (ANGUS), the US Air Force Reserve (USAFR), and the US Coast Guard Reserve.

Guidelines for the utilization of RC forces when called to federal active duty are found in Title

10 USC.

(1) Reserve Forces. Each member of the RC is structured and operated in a manner

similar to its respective AC counterpart. Unlike the ARNGUS and ANGUS, the remaining four

RC organizations (USAR, USNR, USAFR, USMCR) operate under the same C2 relationships

in both peacetime and wartime and do not have state-specific relationships. When called to

active duty, RC forces conduct HD and CS missions under Title 10 USC guidelines exactly as

AC forces. While on active duty, members of the USAR, USNR, USAFR, and USMCR are subject

to the provisions of the Uniform Code of Military Justice (UCMJ). Reserve forces are called to active

duty through the mobilization/demobilization process. Title 10 USC reserve forces are able to execute

CS missions in involuntary annual training if the unit has not completed this training during the fiscal year.

Reserve forces can also serve on CS missions in a volunteer status.
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(2) National Guard. The NG is both part of the RC of the United States military and a

constitutionally authorized organized militia. Traditionally the NG serves its states, and local communities,

under the militia clause and serves as a strategic, and operational, reserve of the United States. The

Army National Guard (ARNG) and the Air National Guard (ANG) of the United States (ARNGUS

and ANGUS respectively) are federal reserve components and are federally funded to meet federal

service specific training requirements. Every National Guardsman belongs to both their respective State

ARNG or ANG and the corresponding federal component as well (ARNGUS or ANGUS.) The NG

is a critical resource in domestic emergencies and is an effective force multiplier to civil authorities in

responding to disasters or acts of terrorism at the state and local level.

(a) The Army and Air NG are established in 54 states and territories, including the

Commonwealth of Puerto Rico, the Territory of the US Virgin Islands, the territory of Guam, and the

District of Columbia. With the exception of the District of Columbia whose head is the “Commanding

General” and reports through channels ultimately to the President of the United States, the head of the

NG in each state is the adjutant general (TAG), who reports to the governor.

(b) Unlike the federal reserve, a member of the NG may serve in one of three statuses:

1. Title 10 USC status – federal active duty. The member is ordered to active duty

under various sections of Title 10 USC. Pay and allowances are federally funded, and the member is

under federal command and control and subject to the UCMJ.

2. Title 32 USC status. This status is used for both training and certain operational

missions. A member’s pay and allowances are federally funded, but the member is under state C2 and

subject to the state military code versus the UCMJ. For training, this status includes weekend drills,

annual training, and certain other types of training paid out of reserve force appropriations. Operationally,

this status is used for CD missions, HD activities, and the WMD CS teams. Title 32 USC status has

also been used to secure strategic facilities, such as airports, pharmaceutical labs, nuclear power plants,

and border crossings.

3. State Active Duty status. Under provisions of state law a member can be

ordered to state active duty under the C2 of a governor. Pay and allowances are state funded and

the member is subject to the state military code versus UCMJ. This status is typically used for

state responses to natural and man-made disasters and civil disturbances.

(c) Unless activated in federal service (Title 10 USC), the NG is under state or

territorial control. Title 32 USC confirms the state or territorial control over the NG in peacetime

without the restraint of the PCA and is the preferred status for domestic employment and is

consistent with the NRP for CS operations.

(d) The NG in state active duty or Title 32 USC status is likely to be the first military

force to provide support for a CS incident. Under the command of a governor, NG actions are closely

coordinated with those of state agencies, state political subdivisions, tribal governments, neighboring

and supporting states, NGOs, and federal agencies, to include DHS and DOD. In many states, TAG
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Department of Defense Operational Environment

is the state Director for Emergency Management and Director of HS, and as such, not only directs the

response of the state’s NG forces, but also directs the state’s response to CM. Figure II-3 depicts the

various TAG roles.

(e) The NG, along with the rest of the US Armed Forces is transforming to meet the

challenges of the 21st Century. It is vital to recognize the NG capabilities that will interact with and be

operating in a disaster area during CS operations. The following NG initiatives highlight the major

programs DOD should be familiar with because state and federal military forces will work closely

together to coordinate support, minimize the duplication of effort, and establish unity of effort. Pursuant

ME

VT

NH

MA

RI

NJ

NY

PA

DE

WV

VA

NC

GA

TN

MS AL

AR

LA

OK

TX

KY

OH

MI

IN

IL

WI

MN ND

SD

NE

KS

IA

MO

NM AZ

UT

CO

WY

MT WA

OR ID

HI

PR

FL

CA CT

DC

VI

THE ADJUTANT GENERAL ROLES

The Adjutant General also serves as

State Director Emergency Management (EM)

State Director Homeland Security (HS)

State Director HS, State Director EM

NV

AK

Figure II-3. The Adjutant General Roles
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JP 3-28

to recent changes to Title 32 USC, Section 502(f), the NG can also perform operational missions

authorized by the President or SecDef.

1. Joint Force Headquarters State (JFHQ-State). Each state has a JFHQ-State,

which integrates Army and Air NG resources. The JFHQ-State provide a focal point to operate jointly

with combatant commands and any federal JTFs that may perform HD or CS missions within a state’s

boundaries.

2. Joint Task Force State (JTF-State). The NG of each state is capable of

establishing a JTF-State to facilitate the joint employment of state NG resources under the JFHQState for operational missions in support of a civil emergency in either a state active duty or Title 32

USC status. These JTFs are tailored to the operational requirements and NG JTF commanders will be

certified by DOD to simultaneously command both federal and state military forces.

3. National Guard Reaction Force (NGRF). The NGRF provides rapid reaction

forces to each state that, at the request of the governor or the President, is capable of supporting local or

state LEAs in support of missions such as securing critical infrastructure.

4. Weapons of Mass Destruction – Civil Support Team (WMD-CST). The WMDCST provides specialized capabilities designed to support civil authorities at a domestic CBRNE terrorist

incident site by identifying CBRNE agents/substances, assessing current and projected consequences,

advising on response measures, and assisting with appropriate requests for state support.

5. CBRNE Enhanced Response Force Package (CERFP). The NG CERFPs

provide a regional response capability comprised of existing traditional NG units task organized

to respond to WMD attacks and are capable of performing search and extraction, casualty/

patient decontamination, mass medical triage, and treatment at a CBRNE incident.

c. Combat Support Agencies

(1) Defense Threat Reduction Agency (DTRA). DTRA provides services and support

to DOD components for combating threats to national security. DTRA offers a range of capabilities

relating to CBRNE.

(a) DTRA’s Operations Center maintains situational awareness and serves as a

point of contact for access to a variety of support including:

1. Secure communications.

2. Technical reach-back for warfighters and first responders, on a 24-hour, 7-day

per week basis, in the form of subject matter experts on DTRA computational tools.

3. Liaison and coordination of assistance from CCDRs and other federal agencies

in response to an accident or incident.

4. Data on effects of radiation on electronics.
II-15

Department of Defense Operational Environment

5. Modeling/simulation for CBRNE analysis and hazard/consequence prediction.

DTRA has the Hazard Prediction and Assessment Capability and Consequence Assessment Tool Set

to forecast damage such as blast, heat, radiation, and hazardous material release and the effects of

unpredictable phenomena such as natural or man-made disasters.

Note: The Interagency Modeling and Assessment Center provides atmospheric hazard predictions in

support of the federal response.

6. Information on location and capabilities of specialized DOD and Department of

Energy assets capable of responding to accidents or incidents involving radioactive materials.

7. Nuclear forensics for domestic nuclear event attribution.

8. Support to law enforcement investigations.

(b) DTRA has the capability to deploy the following kinds of support assets:

1. Liaison Officers. While already on-site at certain combatant commands,

additional LNOs could be dispatched to other commands as required.

2. CM Advisory Teams. Teams of two to nine experts, including planners,

modelers, lawyers, public affairs (PA) specialists, CBRNE specialists, radiation physicians, and

health physicists.

3. Joint Staff Integrated Vulnerability Assessment Teams. Assess mission,

personnel, and installation vulnerability to terrorist attack.

4. Balanced Survivability Assessment Teams. Assess essential mission

systems and critical infrastructure survivability.

5. Technical Support Teams. Provide on-site and direct technical support of

DTRA computational tools to warfighters supporting their full spectrum of mission areas.

(2) National Geospatial-Intelligence Agency (NGA)

(a) NGA is a combat support agency which provides geospatial intelligence (GEOINT)

in support of DOD, the national intelligence community and federal decision makers. GEOINT is the

exploitation and analysis of imagery and geospatial information to describe, assess, and visually depict

physical features and geographically referenced activities on the Earth. GEOINT consists of imagery,

imagery intelligence, and geospatial information. Combatant commands directly task NGA to provide

GEOINT for planning and crisis and consequence management. GEOINT also supports civil authorities

in their ability to rapidly respond to threats by providing geo-referenced visual and data products that

serve as a foundation and common frame of reference for any operation. NGA also support national

special security events (NSSEs) and man-made or technological disasters. NGA provides direct analytical

support through the lead federal agencies and/or combatant commands primarily through the deployment
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of team specialists in response to natural disasters, to include earthquakes, floods, hurricanes, and

wildfires. The standard production includes imagery-derived initial damage or recovery mitigation

assessments, analytical reporting through NGA intelligence briefs and geospatial situational awareness

products. Analytical support and reachback capability is also supplemented by NGA specialists embedded

within the combatant command’s intelligence center.

(b) NGA also provides support in the form of the Domestic Mobile Integrated

Geospatial-Intelligence System (DMIGS). DMIGS is a mobile self-contained vehicle that integrates

GEOINT analysis hardware and software with a robust communication system, enabling deployed

analysts to receive and send data instantaneously to NGA facilities, allowing other NGA analysts to

collaborate remotely on analysis and products. The DMIGS allows NGA analysts to work directly at

the site of the crisis or special event and provide time critical information on demand.

d. Civil Air Patrol/Air Force Auxiliary. The CAP is a nationwide voluntary organization supported

by the Air Force that serves as the Air Force Auxiliary. CAP is ideally suited to perform a variety of CS

tasks such as air and ground search and rescue, disaster relief, and CD. Its members fly more than 95

percent of the inland search and rescue missions directed by the Air Force Rescue and Coordination

Center. CAP assists the US Customs Service, Drug Enforcement Administration, and Forest Service in

their CD efforts. CAP aircraft fly CS missions such as surveillance of critical infrastructure, airborne

communications relay, and airlift of critical cargo. During Hurricanes Katrina and Rita in 2005, CAP

provided near real time aerial imagery of flood damaged areas for civil authorities as well as ground

missions such as house to house searching of neighborhoods and passing out emergency supplies. CAP

has 52 wings — one wing for each state, Puerto Rico, and the District of Columbia. Wings are

subdivided into groups and squadrons.

e. The Department of Homeland Security. DHS leads the unified national effort to secure

America. They prevent and deter terrorist attacks and protect against and respond to threats and

hazards to the nation and will ensure safe and secure borders, welcome lawful immigrants and visitors,

and promote the free-flow of commerce.

For more information on DHS, see Appendix E, “Department of Homeland Security.”

f. The US Coast Guard (USCG) is a Military Service within the DHS dedicated to protecting

the safety and security of the United States. As such, it operates globally; on the high seas and in US

territorial waters, and has certain federal law enforcement authorities ashore. It is a federal LEA and an

Armed Force of the United States whose Service secretary is the Secretary of DHS. It is the lead

agency for maritime drug interdiction and the co-lead agency for air drug interdiction operations, along

with US Customs and Border Protection. The USCG defends the United States’ seaward frontier

against illegal drugs and illegal immigrants. The USCG is also the lead agency for maritime search and

rescue. The USCG is the lead agency for coordinating all maritime security planning and operations in

the ports and inland waterways, including all efforts to prevent attacks and to mitigate the consequences

of an attack should one occur. The USCG’s counterterrorism teams are ready to intercept terrorists

before they ever reach the homeland. In time of war, the USCG could be transferred to the Department

of the Navy for operations. In its maritime law enforcement role, USCG has jurisdiction in both

US waters and on the high seas. In this capacity, the USCG may make inquiries, examinations,
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Department of Defense Operational Environment

inspections, searches, seizures, and arrests upon the high seas and waters over which the US has

jurisdiction, for prevention, detection, and suppression of violations of laws of the US. It is unique

among the Services in that it has statutory law enforcement authority. DOD through the US

Navy provides CS to DHS(USCG) in the maritime domain through existing EXORDs and the

Memorandum of Agreement Between the Department of Defense and the Department of Homeland

Security for Department of Defense Support to the United States Coast Guard for Maritime

Homeland Security.

g. Interagency Partners. CS missions require detailed planning and interagency coordination

to develop operational relationships with other federal departments and agencies. In certain circumstances

DOD’s dependence on non-DOD organizations, information, assets and infrastructures could be critical

in the accomplishment of CS missions.

(1) Environmental Protection Agency (EPA). EPA serves as the ESF #10, “Oil and

Hazardous Materials Response,” Coordinator and as a support agency to the FBI for technical operations,

and a support agency to DHS/FEMA for CM. EPA provides technical personnel and equipment to the

federal agency with lead responsibility during all aspects of WMD incidents. EPA assistance may

include threat assessment; domestic emergency support team (DEST) and regional emergency response

team deployment; federal agency with lead responsibility advisory requirements, technical advice, and

operational support for chemical, biological, and radiological releases; agent identification; hazard detection

and reduction; environmental monitoring; sample and forensic evidence collection and analysis; identification

of contaminants; feasibility assessment; clean-up; and on-site safety, protection, prevention,

decontamination, and restoration activities. EPA and USCG share responsibilities for response to oil

discharges into navigable waters and releases of hazardous substances, pollutants, and contaminants

into the natural and physical environment. EPA provides the predesignated federal on-scene coordinator

for inland areas while USCG coordinates resources for the containment, removal, and disposal activities

and resources during an oil, hazardous substance, or WMD incident in coastal areas.

(2) Department of Health and Human Services (DHHS). DHHS serves as the ESF

#8, “Public Health and Medical Services,” Coordinator. DHHS assistance supports threat assessment,

DEST deployment, epidemiological investigation, and lead federal agency advisory requirements, and

technical assistance requirements. DHHS serves as a support agency to the FBI for technical operations,

and a support agency to DHS/FEMA for CM. DHHS provides technical personnel and equipment to

the federal agency with lead responsibility during all aspects of an incident. DHHS can also provide

regulatory follow-up when an incident involves a product regulated by the Food and Drug Administration.

Operational support to DHS/FEMA may include mass immunization, mass prophylaxis, mass fatality

management, pharmaceutical support operations (Strategic National Stockpile), contingency medical

records, patient tracking, and patient evacuation and definitive medical care provided through the NDMS.

(3) United States Department of Agriculture (USDA). USDA serves as the ESF #4,

“Firefighting,” and ESF #11, “Agriculture and Natural Resources,” Coordinator, a support agency, and

a primary agency to DHS/FEMA by identifying food assistance requirements, and securing and arranging

for the transportation of food assistance to affected areas. USDA/Forest Service manages and coordinates

firefighting activities by providing personnel, equipment, and supplies in support of firefighting operations.
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(4) General Services Administration (GSA). GSA serves as the ESF #7, “Resource

Support,” Coordinator and primary support agency to DHS/FEMA during disaster relief and CM

operations. GSA provides emergency supplies, space, office equipment, telecommunications, contracting

services, transportation services, and security services.

(5) American Red Cross. The ARC serves as a primary agency for coordinating mass

care support during disaster relief and CM operations. Support may include shelter, feeding, emergency

first aid, disaster welfare information, bulk distribution, supportive counseling, blood, and blood products.

(6) Department of State. DOS serves as the primary agency for coordinating support and

donations from foreign sources (including intergovernmental organizations). DOS established the “US

Entry Guide” website (www.useg.org or www.useg.net) which identifies US diplomatic clearance and

landing authorization requirements for foreign state aircraft entering the US and lists DOS and Service

requirements, and clearance requirements for international and domestic civil aircraft to use DOD

installations in US territory. In coordination with the Office of US Foreign Disaster Assistance and/or

the United States Agency for International Development, DOD may be required to establish locations

to receive international in-kind donations (including foreign military donations).

5. Command and Control

a. Supported Combatant Commander. For CS operations, SecDef designates a supported

CCDR. Ordinarily, this will be CDRUSNORTHCOM for CS missions in CONUS and Alaska;

CDRUSSOUTHCOM in Puerto Rico or the US Virgin Islands; or CDRUSPACOM for Hawaii

and the Pacific region. JDOMS publishes an EXORD to further delineate support relationships,

available forces, end state, purpose and SecDef approved scope of actions.

b. Joint Task Force. The supported CCDR designates a C2 headquarters to execute the CS

operations. Based on the severity of the situation the supported CCDR may deploy a JTF to the JOA

for CS operations in support of a primary or coordinating agency.

(1) Deployment of a JTF is not contingent on a request from the primary or coordinating

agency.

(2) A catastrophic event may dictate the deployment of multiple JTFs.

(3) The NRP states that if a JTF is established, consistent with operational requirements, its

command and control element will be collocated with the PFO at the JFO to ensure coordination and

unity of effort. The collocation of the JTF command and control element does not replace the requirement

for a DCO/DCE as a part of the JFO coordination staff and it will not coordinate request for assistance

for DOD. The DCO is the DOD single point of contact at the JFO.

(4) Either a standing JTF or one configured for specific missions provides emergency assistance

across all lines of support. The JTF may require greater proportions of support units and capabilities

than required in a combat deployment.
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Department of Defense Operational Environment

(5) The JTF will usually exercise OPCON/tactical control of DOD forces attached in support

of the federal effort within the JOA.

(6) All classes of supply and all types of services may be required. Close coordination

between the JTF and ESF coordinator is required. Interface for coordination is through the DCO.

c. Defense Coordinating Officer. The DCO is the DOD single point of contact at the JFO.

RFAs are validated through the DCO and forwarded through designated DOD reporting chain.

(1) DCOs, assigned to ARNORTH, are permanently stationed in the ten FEMA regions, at

or near the FEMA RRCCs. Additional DCOs may be required for multiple JFOs.

(2) C2 of DCOs is directed by the supported CCDR in an EXORD for CS missions. They

may report directly to the supporting CCDR or to a TF/JTF.

(3) The DCO is supported by the DCE, an administrative and support staff consisting of five

permanently assigned personnel.

(4) Augmentation to DCE within a JFO is generally required from a defense coordinating

unit consisting of emergency preparedness liaison officers (EPLOs), specialty staff augmentees, and

additional personnel from the Services.

(5) A DCO can also have limited C2 of DOD forces that are operational in the JOA

for CS missions, based on the EXORD. A TF or JTF would likely be deployed for C2 of larger

numbers of DOD forces.

d. Emergency Preparedness Liaison Officers. EPLO positions are authorized in each FEMA

region and state (see Figure II-4). Regional EPLOs provide DOD liaison with FEMA regional

organizations and agencies; facilitate planning, coordination, and training for military support to civil

authorities and national security emergency preparedness; advise federal agencies and organizations on

DOD capabilities and resources; advocate mutual support required by DOD; and, on order, augment

DOD response for CS.

(1) They are administered by and report to program managers within their respective Services

who ensure EPLOs are trained, equipped, and maintain current proficiency on the NRP, NIMS, CS

procedures and readily available Service capabilities.

(2) They are activated and employed by their Services at the request of the supported CCDR.

They are trained in disaster preparedness and CS operations. EPLOs advise civil authorities on military

resources and capabilities and facilitate coordination between civil authorities and DOD during state or

federal exercises or CS operations.
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(3) Once activated, EPLOs are assigned/attached to the supported combatant command

and then could be directed by the DCO upon the DCO’s arrival in the area. Support of the DCO

operation in each region is a priority for all of the Services. Army EPLOs will be assigned/attached to

ARNORTH and will most likely be directed by the DCO and assigned wherever needed.

(4) State emergency preparedness liaison officers (SEPLOs). SEPLOs habitually support

the DCO, but can be located pre-event at the RRCC and then move forward to the JFO once established

with the DCO. SEPLOs primarily support the DCO but are oriented towards the state EOCs and NG

JFHQs. SEPLOs also work with the DCO in the JFO as required. EPLOs of all types and Services

have historically demonstrated a vast aptitude at making significant contributions in a wide range of CS

operations and they can be found working in the DCO operation, as LNOs to the ESFs, state EOCs,

NG JFHQs, JTFs, ARNORTH operational command posts (1 and/or 2), base support installation

(BSI), JDOMS and other places where their services are required.

Figure II-4. Federal Emergency Management Agency Regional Chart

FEDERAL EMERGENCY MANAGEMENT AGENCY

REGIONAL CHART

X

VIII

V III

I

II

IV

VII

VI

IX
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Department of Defense Operational Environment

For more information on EPLO, refer to DODD 3025.16, Military Emergency Preparedness Liaison

Officer (EPLO) Program.

6. Interagency Coordination

a. For CS operations, DOD must coordinate with a variety of other government agencies (OGAs),

including LEAs. Agreements between DOD and OGAs may help in defining the scope of support to be

provided either routinely or in an emergency. However, these agreements may not constitute SecDef

preapproval of DOD support for all CS missions.

b. Synchronization, coordination, and integration of all instruments of national power are

required to ensure the successful execution of CS missions. The challenges facing the Nation

are increasingly complex and will require the skills and resources of many organizations. Some guidelines

for interagency coordination are listed below:

(1) Identify CS mission capabilities compliant with NIMS Incident Command System and

governing federal statutes, policy, guidelines, and best practices.

(2) Identify DOD agencies and organizations potentially involved in the operation.

(3) Identify key elements of information that various agencies can share.

(4) Identify required resources.

(5) Establish interagency assessment teams.

c. Challenges of Interagency Cooperation and Coordination during CS Operations.

(1) CS is conducted in a complex environment with literally thousands of different

jurisdictions and agencies (federal, state, tribal, and local). CS may at times involve neighboring

countries due to the proximity of an event to national borders and the interconnectedness of

nations. This complex environment necessitates coordinated and integrated operations with agency

partners to enable rapid mutual aid, in response to natural or man-made disasters or during national

emergencies.

(2) DOD actions in CS operations may require rapid response to mitigate the impact of a

disaster on US domestic population and critical infrastructure. Legal and policy constraints, guidelines,

intensive media coverage, multiple jurisdictions, and the competing demands by various levels of political

authorities may complicate the effectiveness of DOD response. This environment necessitates an effective

interagency and PA process and program.

(3) Interagency coordination can at times be a significant challenge and take considerable

effort, yet it also provides numerous benefits and “force multipliers” for DOD and its CS partners.

Expanded information sharing and the interaction with agency liaison personnel prior to and during CS
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exercises and operations significantly enhance real-time information sharing and coordination activities

and improve CS related response capabilities.

(4) US military forces performing CS missions will work through the primary agency in

support of state, local, and tribal governments and agencies. Interagency cooperation and coordination

is essentially a USG construct, and state, local and tribal partners may be unfamiliar with its structure and

processes, or even constrained on how they can participate by their own laws, regulations, and/or

political direction. Commanders must exercise flexibility and ingenuity in order to achieve unity of effort

in this complex domestic environment.

d. The combatant command interagency process complements and supports the higher level or

strategic interagency process, and may involve such key elements as joint interagency coordination

groups (JIACGs); theater security cooperation programs, plans and initiatives; country team interaction

and coordination; and annex V (Interagency Coordination) to formal operation plans and CONPLANs;

all designed to enhance information sharing, effective joint and interagency planning, and maximize

coordinated operations.

e. Elements for Interagency Coordination

(1) Joint Interagency Coordination Group. The JIACG is an interagency staff group

that establishes regular, timely, and collaborative working relationships between civilian and military

operational planners. Composed of USG civilian and military experts accredited to the CCDR and

tailored to meet the requirements of a supported CCDR, the JIACG provides the CCDR with the

capability to collaborate at the operational level with other USG civilian agencies and departments. It is

the CCDR’s primary interagency forum to share information, analyze ongoing activities, and anticipate

future interagency actions, implications, and/or consequences.

(2) Agency Representatives and Command Representatives. Subject matter experts

(SMEs) and LNOs from key partner agencies and commands facilitate effective two-way

communication, coordination, and cooperation. A formally established liaison and representative

link between the combatant command and the partner agency is beneficial to both organizations. Specific

focus should be on agency or command LNOs whose organizations play a key part in successful and

seamless execution of CS operations. Regardless of mission, having key partner agency and command

representatives will be essential for the CCDR conducting operations on US territory. Equally important,

combatant commands may locate a command representative or LNO at key partner agencies

commensurate with their operational requirements. Agency representatives or command LNOs are

more effective when they have access to command leadership, key staff, and key working groups.

“On-the-ground” agency representatives and command LNOs located at a combatant command should

typically be located where they will be most usefully engaged, supportive of command activities, and

beneficial to their parent agency or command. However, they also need to have an ongoing interface

with the combatant command JIACG. This maximizes their participation in and support of the interagency

process and benefit to their particular agency or combatant command.
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Department of Defense Operational Environment

(3) Interagency Coordination Group (IACG)/Interagency Planning Cell (IPC). Within

the JIACG, some commands can create an IACG/IPC. The IACG is the interagency incident management

group for the JIACG during contingencies, and provides a 24x7 capability if required. The IACG is

formed by members from the JIACG (which provides people, resources, and reach-back capability for

additional subject matter expertise) and is augmented by available and required agency representatives

and command LNOs. These personnel collaborate to provide the CCDR and staff a clear picture of

interagency activities and their implications. The IACG mission is to integrate and synchronize interagency

activities to ensure mutual understanding, unity of effort, and full spectrum support. A group similar to the

IACG is the IPC, which is activated upon receipt of CJCS’s warning or alert order or at the direction of

the CCDR. The IPC is established to provide timely advice to the CCDR about the capabilities/

resources of other agencies in the CS effort. An IPC will enable coherent and efficient coordination

through the participation of interagency SMEs. Whether an IACG or an IPC, this element provides the

CCDR an interagency action cell focused on contingencies that can assist and enhance the command’s

execution of the CS effort.

For further reference, see JP 3-08, Interagency, Intergovernmental Organization, and Nongovernmental

Organization Coordination During Joint Operations (Vols. 1 & 2).

7. Information Environment

The “information environment” is the aggregate of individuals, organizations, and systems that collect,

process, disseminate, or act on information, and the information itself. CS missions require combatant

commands to share data and information among DOD and non-DOD mission partners. One of the

challenges is to ensure DOD systems can accommodate this operational necessity, able to interface and

interoperate with communications systems that exist outside of DOD, in a secure and seamless manner.

Three components of providing an available and effective information environment are a reliable, robust

communications system, information sharing among mission partners, and assuring and defending our

critical information infrastructure against threats and aggression.

a. Communications System. A reliable, robust communications system enables centralized

planning and the coordinated and mutually supporting employment of forces and assets. It includes

command centers, operations centers, processing and distribution centers and associated systems,

deployed systems, and data sources. Sharing systems, information and the decisions generated by them

among mission partners ensures a synchronized effort and facilitates decentralized execution in a dynamic

environment.

(1) Traditional Communications. Traditional communications systems will serve as the

backbone in support of CS operations. They must be interoperable, mobile, secure, and capable of

supporting voice, data, and video to most effectively contribute to C2. Planning for the integration of

spectrum resource allocation will enable the DOD, federal, state, tribal, and local responders to

interoperate.
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(2) Nontraditional Communications. Infrastructure may be damaged, thus DOD must

identify capabilities to bridge the gap until infrastructure is restored. Nontraditional systems that are

scalable, interoperable, and complementary with those used by coalition and civilian partners may be

essential and should also support the dissemination of voice, data, and video information.

(3) Network Operations. The combatant command communications system directorate

is responsible for providing the communication system needed to support reliable and timely information

flow in support of joint operations by providing theater guidance and priorities. Theater guidance and

priorities are executed through the theater network operations control center which monitors status of

critical communications systems and coordinates with communities of interest within the AOR.

b. Information Sharing. The need to share information is an operational necessity to minimize

the potential for operational gaps. The overall goal is seamless access to trusted information throughout

the response effort.

(1) To ensure flexibility and interoperability with mission partners, information must be shared

to the maximum extent possible.

(2) An information synchronization group enables the collaborative environment by employing

information liaisons who fuse operationally relevant information across all levels of command. This

organization is vital to effective information sharing and must transcend organizational, policy, and technical

barriers.

c. Critical Information Infrastructure Protection. HSPD-5, Management of Domestic

Incidents, and HSPD-7, Critical Infrastructure Identification, Prioritization and Protection,

establish national policy for managing threats and incidents in cyberspace. The NRP implements policy

to eliminate vulnerabilities and strengthen capabilities to prevent/mitigate, prepare for, respond to, and

recover from the consequences of cyberspace incidents.

(1) The DHS National Cyber Response Coordination Group (NCRCG) is the principal

interagency mechanism for managing cyberspace incidents of national significance or having significant

cyberspace consequences. The NCRCG, of which DOD is a member, facilitates federal coordination

of response to a cyberspace incident. DOD has a statutory role to protect critical information infrastructure

and key assets.

(2) When directed by the President or SecDef, DOD will provide protection of DOD and

non-DOD critical networks against threat and aggression.

(a) The Defense Critical Infrastructure Program supports physical protection efforts of

DOD components and non-DOD mission partners.

(b) CDRUSSTRATCOM uses network operations (NETOPS) to support the

NCRCG and to operate and defend the Global Information Grid (GIG). NETOPS operators

perform functions to sustain operational readiness of the GIG, provide integrated network visibility
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Department of Defense Operational Environment

and end-to-end management of networks, global applications and services in support of DOD’s

warfighting, intelligence, and business missions. The scope of NETOPS includes infrastructure,

organization, personnel, procedures, and components that collect, process, store, transmit, display,

disseminate, and act on information.

8. Chemical, Biological, Radiological, Nuclear, and High-yield Explosives

Environment

a. The Strategy for Homeland Defense and Civil Support identifies as one of its priorities CM

support of civil authorities for domestic CBRNE mass casualty attacks.

b. CBRNE incidents may be deliberate or unintentional. Not all domestic CBRNE incidents will

necessitate a federal or military response. The potential for multiple simultaneous CBRNE attacks on

US territory that would result in mass casualties must be considered in operational CS planning and

training.

c. Individual characteristics, effects, and planning considerations of chemical, biological, radiological,

nuclear, toxic industrial materials, and detonation of high-yield explosives must each be approached

separately. Each of these has unique physical characteristics, specific target sets against which they

would be most appropriate from a terrorist point of view, and different CS requirements.

9. Legal and Policy Considerations

a. Legal Considerations. The legal authorities governing the employment of US military forces

in CS operations consist of federal laws, executive directives, DOD plans and policies, and other

directives, instructions, and regulations, making a comprehensive legal review of CS plans essential.

Commanders will ensure that the application of military capabilities and resources is within the constraints

of the law. Accordingly, commanders will seek legal advice regarding CS plans, policies, and operations

from their staff judge advocates to ensure conformity with legal requirements.

For more information on authorities see Appendix F, “Key Civil Support Legal and Policy

Documents.”

b. Policy Considerations. Military commanders ensure that DOD resources are used judiciously

while conducting CS operations by adhering to the evaluating criteria discussed earlier and IAW the

following supporting principles:

(1) DOD resources are provided only when response or recovery requirements are or will

be beyond the capabilities of local, state, and federal civil authorities, and when they are requested by a

federal agency with lead responsibility and approved by SecDef. An exception to this is in the case of

immediate response authority (see DODD 3025.15, Military Assistance to Civil Authorities). When

requested by civil authorities, or as outlined in the MOTR Plan for all maritime threats regardless of type

or location, local commanders can respond to save lives, prevent human suffering, or mitigate great

property damage under imminently serious conditions.
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(2) SecDef retains control of assigned Title 10 USC military forces providing CS.

(3) The NG, due to local presence, will likely be the first military responder during a civil

emergency. The early employment of NG will usually be in either a state active duty status or Title 32

USC status, both are under the supervision of the adjutant general and the direction of the governor.

There are many advantages associated with employment of the NG in either state active duty or Title 32

USC status. Most notably are the ability to assist law enforcement without Posse Comitatus restrictions,

quicker reaction times, established community and interstate emergency management relationships, and

an in-depth understanding of the operating environment. To ensure operational continuity, most, if not

all, deployed NG forces engaged in supporting a response will remain in state active duty or Title 32

USC status throughout an event. Therefore, the military response to extraordinary events that requires

DOD CS will be a coordinated effort between the NG in state active duty or Title 32 USC status and

Titles 10 and 14 USC forces.

(4) DOD components do not perform any function of civil government unless authorized.

Refer to DODD 5525.5, DOD Cooperation with Civilian Law Enforcement Officials, for DOD policy

on providing military support to LEAs, including personnel and equipment.

c. Intelligence Support to Law Enforcement Agencies and Intelligence Oversight.

Commanders and staffs must carefully consider the legal and policy limits imposed on intelligence activities

in support of LEAs, and on intelligence activities involving US citizens and entities by intelligence oversight

regulations, policies, and EOs. See Chapter III, “Operations,” regarding intelligence support to law

enforcement, and Chapter IV, “Supporting and Sustaining Activities,” for guidance on intelligence oversight.
CHAPTER III

OPERATIONS

III-1

“Our job will be to preserve the Nation’s security by defending the American people

where they live and work, and support civilian authorities as needed. We will also

prepare for the inevitability of uncertainty and surprise. This will be a team effort

from start to finish.”

General Ralph Eberhart, USAF

Commander, US Northern Command, (2002-2004)

1. Categories and Types of Operations

CS operations, for the purposes of this publication, are divided into the three broad categories of

domestic emergencies, designated law enforcement support, and other activities, based on the CS

definition. These categories, in many cases, can overlap or be in effect simultaneously, depending on the

particular circumstances of the incident. Under the categories, there are broad types of CS missions,

with examples illustrated in Figure III-1. This figure provides the structure for discussion and understanding

of CS.

a. Disasters and Declared Emergencies. DOD support in a domestic disaster or a Presidential

declaration of emergency is in support of the primary or coordinating agency(ies). Military commanders

and responsible DOD civilians may, under certain conditions, respond under immediate response authority

in order to save lives, prevent suffering, and mitigate great property damage under imminently serious

conditions. Requests for support could come with some advance notice (weather forecasts and hydrology

surveys), with short notice (intelligence indicators and geological activity indicators), but may also occur

without notice.

(1) Presidential Declarations. Under Stafford Act authority, two types of actions may be

taken, summarized as follows.

(a) Major Disaster. The President issues a major disaster declaration after

receiving a request from the governor of the affected state. Major disaster declarations may be

issued after a natural catastrophe or, “regardless of cause, fire, flood, or explosion.” A declaration

authorizes DHS to administer various federal disaster assistance programs for victims of declared

disasters. Each major disaster declaration specifies the type of incident covered, the time period

covered, the types of disaster assistance available, the counties affected by the declaration, and

the name of the FCO.

(b) Emergency. The declaration process for emergencies is similar to that used for

major disasters; the President may, however, issue an emergency declaration without a gubernatorial

request if primary responsibility rests with the federal government. An emergency declaration may be

issued on “any occasion or instance” in which the President determines that federal assistance is required.

Under an emergency declaration, the federal government funds and undertakes emergency response

activities, debris removal, and individual assistance and housing programs. Disaster relief fund expenditures
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Chapter III

JP 3-28

for an emergency are limited to $5 million per declaration unless the President determines that there is a

continuing need; Congress must be notified if the $5 million ceiling is breached.

(2) Operation types under this category could include:

Figure III-1. Civil Support Operation Categories and Operational Types

CIVIL SUPPORT OPERATION CATEGORIES

AND OPERATIONAL TYPES

Civil Support

Domestic

Emergencies

Designated

Law

Enforcement

Other

Activities

Disasters and

Declared

Emergencies

Support or Restore

Public Health and

Services and Civil

Order

National Special

Security Events

Periodic Planned

Support

Categories Types

CBRNE - Chemical, Biological, Radiological, Nuclear, and High-yield Explosives Examples

Natural

Disasters

Man-made

Disasters

CBRNE

Incidents

Civil

Disturbances

Border Security

and Immigration

Enforcement

Support

Equipment

Support to Law

Enforcement

Counterterrorism

and Counterdrug

Postal Services

Animal/Plant

Disease

Eradication

Olympics

Support

World Fairs

Inaugural Support

Super Bowl

State Funerals

National

Conventions

Sensitive Support

Operations

Military Training

Exchanges

Community

Relations

Military Lab

Support

Civilian Critical

Infrastructure

Protection
III-3

Operations

(a) Natural Disaters. As a signatory to the NRP, DOD may be asked to provide

assistance to DHS/FEMA in an attempt to save lives, protect property, and lessen the threat of a

catastrophe in the US. When natural disasters occur and military assistance is anticipated, DHS/FEMA

will request a DCO who serves as the DOD point of contact. Capabilities with a global focus, such as

airlift and space assets, will normally be provided in support rather than the SecDef authorizing a change

in OPCON. Events of this type could include wildland fires, tornadoes, earthquakes, floods, hurricanes,

typhoons, cyclones, tidal waves, tsunamis, volcanic eruptions, landslides, mudslides, avalanches, blizzards,

drought conditions, etc.

(b) Man-made Disasters. A technological disaster threatens the viability of the

technological system, causes massive loss of life or property, and may endanger the social environment

in which it occurs. Technological disasters can have a global impact, such as the Chernobyl nuclear

power plant explosion. Events of this mission type could include accidental or intentional releases of oil

or other hazardous materials, power grid outage, terrorist attacks on critical infrastructure, etc.

(c) CBRNE Incidents. The implications of a deliberate or unintentional large release

of a CBRNE are potentially catastrophic. A CBRNE event or attack may occur with little or no warning

and may overwhelm the response capabilities and resources of local and state jurisdictions requiring a

federal response. Therefore, specific attention has been focused on task-organizing within DOD to plan

for and integrate its support to the NRP primary or coordinating agencies to manage the consequences

of a domestic CBRNE event. An installation’s CBRNE CM response under DOD Instruction (DODI)

2000.18, Department of Defense Installation Chemical, Biological, Radiological, Nuclear, and

High-Yield Explosive Emergency Response Guidelines, is primarily force protection and continuity

of operations, but may transition to a CS mission depending on the scale and nature of the incident and

level of support provided. Events of this type could include the use of high-yield explosives, biological

attack or accidental release, chemical attack or accidental release, nuclear power plant explosion or

malfunction, etc.

For further reference, see JP 3-41, Chemical, Biological, Radiological, Nuclear, and High-Yield

Explosives Consequence Management.

(3) Non-declared emergencies are those emergencies that may require a response by DOD,

but for which a Presidential disaster declaration has not been issued. These may include situationspecific emergency conditions that require support under existing agreements or laws such as flood

control, wildland fires, and hazardous materials spills. DODI 6055.6, DOD Fire and Emergency

Services Program, provides specific guidance disaster preparedness for the fire and emergency services

aboard installations. Military involvement under this category might include:

(a) Presidential direction of DOD support with Title 10 USC forces. Without a disaster

declaration, the President may also direct DOD to support the response to a disaster or emergency for

a period not to exceed 10 days.

(b) Local commanders providing “immediate response.”
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(c) Installation commanders supporting and assisting US civil authorities in CM activities

under the guidance of DODI 2000.18, Department of Defense Installation Chemical, Biological,

Radiological, Nuclear, and High-Yield Explosive Emergency Response Guidelines.

(d) USACE responding per ESF #3, “Public Works and Engineering,” or per ESF #6,

“Mass Care, Housing, and Human Services,” or operating under the authority of Public Law 84-99

(Title 33 USC, Sections 467n and 701n).

(e) Response directed by SecDef in response to a governor or primary agency RFA.

Directed response may range from providing a DCO to providing a single or multiple TFs or JTFs

depending on the situation and level of requested support. When possible, assessment elements from

USNORTHCOM, USPACOM, or USSOUTHCOM will deploy to the anticipated operational area

prior to the event.

(f) Response from Civil Air Patrol (Air Force Auxiliary). The CAP/Air Force Auxiliary

provides emergency services including air and ground search and rescue, disaster relief, aerial

reconnaissance, light airlift, and communications support to civil authorities. Unlike Title 10 USC forces,

Air Force policy allows for CAP/Air Force Auxiliary employment supporting civil authorities without

SecDef approval.

b. Support and/or Restore Public Health and Services, and Civil Order. DOD support

may include augmentation of local first responders and equipment. It may include law enforcement

support, continuity of operations/continuity of government measures to restore essential government

services, protect public health and safety, and provide emergency relief to affected governments,

businesses, and individuals. Responses occur under the primary jurisdiction of the affected state and

local government, where the Federal government provides assistance when required, or support to

Federal law enforcement agencies in the execution of their own responsibilities. When situations are

beyond the capability of the state, the governor requests federal assistance through the President. The

President may also direct the Federal government to provide supplemental assistance to state and local

governments to alleviate the suffering and damage resulting from disasters or emergencies. Requests for

DOD support to restore civil order, restore public services, or reestablish a “normal” state to meet

societal expectations may be received with short or no notice. Military involvement under this category

might include the following types of operations.

(1) Civil Disturbance Operations. The President has the authority to deploy troops within

the United States to enforce the laws. The Enforcement of the Laws to Restore Public Order, Chapter

15 of Title 10 USC (formerly Insurrection Act) authorizes the President to employ the Armed Forces of

the US, including the NG, within the United States to restore order or enforce federal law after a major

public emergency (e.g., natural disaster, serious public health emergency, or terrorist attack) when

requested by the state governor or when the President determines that the authorities of the state are

incapable of maintaining public order. The President normally executes his authority by ordering the

dispersal of those obstructing the enforcement of the laws. The President may act unilaterally to suppress

an insurrection or domestic violation without the request or authority of the state/governor and to exercise

his “major public emergencies” authority to direct the SecDef to provide supplies, services, and equipment

necessary for the immediate preservation of life and property. Such supplies, services, and equipment
III-5

Operations

may be provided: only to the extent that the constituted authorities of the state or possession are unable

to provide them; only until such authorities and other departments and agencies of the United States

charged with such responsibilities are able to provide them; and only to the extent that their provision, in

the judgment of the SecDef, will not interfere with the preparedness of ongoing military operations or

functions. Responsibility for the coordination of the federal response for civil disturbances rests with the

Attorney General. Any DOD forces employed in civil disturbance operations shall remain under

military authority at all times. Forces deployed to assist federal and local authorities during times of civil

disturbance follow the use-of-force policy found in CJCS Instruction (CJCSI) 3121.01B, Standing

Rules of Engagement/Standing Rules for the Use of Force for US Forces.

(2) Border Security and Immigration Enforcement Support. DOD provides support

to other federal agencies in border security and in the event of a mass migration emergency. Historically,

this law enforcement support is in the form of technical assistance, services, and facilities and only on a

temporary basis. Geographic CCDRs can expect to be designated as the supported commander for

the provision and management of installations and services associated with housing migrants while US

Citizenship and Immigration Services screens them for admission and other administrative requirements.

DOJ may also be involved as it retains the lead status for any law enforcement response or action

associated with immigration emergencies. Additionally, the National Guard has an ongoing Title 32

USC operational support mission, called Operation Jump Start, providing significant assistance to securing

the US borders. In support of US Border Patrol efforts, National Guard members assist with surveillance,

installing fences and vehicle barriers, and providing training.

(3) Equipment and Other Support to Law Enforcement. Most of these requests are for

loan, maintenance and occasionally the operation of military equipment, or the information obtained

from use of the equipment. The use of the military in civil law enforcement roles is strictly regulated by

statute and implementing DOD authorities. Military forces performing in this role will normally work in

support of a primary agency (e.g., DHS or DOJ/FBI). Depending on the circumstances, and with

SecDef approval, units providing this support may be armed. When armed, forces will adhere to the

standing rules for the use of force (SRUF) found in CJCSI 3121.01B, Standing Rules of Engagement/

Standing Rules for the Use of Force for US Forces, unless SecDef has approved mission-specific

rules for the use of force (RUF). Military support to civilian LEAs may include, but is not limited to,

support for combating terrorism, CD operations, maritime security and training, and the loan of equipment,

personnel, facilities, or expertise (e.g., ISR capabilities). Requests for loans of equipment, facilities, or

personnel made by LEAs, shall be made and approved IAW DOD policy and instructions for requesting

civil support, and require approval by the SecDef.

(4) Counterterrorism Operations. The Attorney General, acting through the FBI and in

cooperation with the heads of other federal departments, agencies, and military criminal investigative

organizations (MCIOs), coordinates domestic intelligence collection and the activities of the law

enforcement community to detect, prevent, preempt, and disrupt terrorist attacks, and to identify the

perpetrators and bring them to justice in the event of a terrorist incident. If there is a credible threat,

DOD may also be requested to support LEAs in a pre-positioning of forces, or in the case of an

imminent threat to life or severe property damage, take direct action until responsible authorities (DOJ,

DHS, etc.) can respond (in the maritime domain it is likely to be directed by a MOTR action). Under

this type of support, specific RUF must be established and approved. In the absence of preexisting
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RUF, requests for RUF for CS missions will be sent through the supported CCDR and JDOMS for

development and to the SecDef for approval. Mission-specific RUF may be required depending on the

situation. Militaryresponses to a credible threat and acts of terrorism may require both CrM

and CMoperations, which often overlap. DOJ/FBI is the primary agency in preventing or resolving

threats involving terrorism and for crisis response throughout a terrorist threat or act. DHS/FEMA leads

CM operations and is the coordinating agency with overall responsibility for emergency response actions

to lessen or mitigate the consequences of attacks or incidents. In some situations, CM may include preevent planning for one incident while conducting post-event operations for another. DOD direct support

for CM is provided to DHS/FEMA or an NRP primary agency. Under these circumstances, supporting

elements should coordinate, integrate, and synchronize their activities and operations.

(5) Counterdrug Operations. CD/counternarcotics operations are conducted under the

authority delegated in CJCSI 3710.01B, DOD Counterdrug Support.

(6) Postal Services. During postal work stoppages or natural disasters and disruption of

mail service on a national, regional, or local basis, DOD may be required to provide assistance. This

may take the form of materials, supplies,equipment, services, and personnel sufficient to permit

the United States Postal Service to safeguard, process, and deliver the mail in those areas in

which normal mail service has been impaired.

(a) Legal authority for the employment of military resources to reestablish and maintain

essential postal service is found in Title 39 USC, Section 411. DODprovides postal augmentation

under an interdepartmental transfer of services. The declaration of a national emergency is a

sufficient condition for the selective mobilization of RC forces to support the US Postal Service.

(b) Task organization, operations, logistics, personnel, PA, command relationships, alert

notification procedures, and reports are set forth in DOD Postal Augmentation Plan GRAPHIC HAND.

(7) Animal/Plant Disease Eradication. DOD may provide assistance to USDA to contain

and eradicate an actual or imminent outbreak of plant diseases or any menacing animal diseases. USDA’s

Administrator for Animal and Plant Health Inspection Service (APHIS) may request DOD assistance if

an emergency arises from the introduction of a foreign animal or plant disease and/or pest.

(a) USDA, DOD, and GSA signed a memorandum of understanding (MOU) that

provides a mechanism for USDA to request and receive priority support if the presence of animal or

plant diseases or pests constitutes an emergency, as declared by USDA.

(b) Through a federal TF, USDA’s APHIS coordinates, directs, and conducts the federal

response to control and eradicate animal and plant diseases and pests, reimbursing DOD for actual

costs incurred. GSA provides supplies and equipment. Given SecDef approval where required, JDOMS

designates appropriate commanders, Services, or agencies to conduct the operation and coordinates

Service and other federal agency support. The Services and other supporting commanders may provide

installations for bases of support, provide resources, and identify and provide technically qualified personnel

to assist USDA as directed by JDOMS. DOD Veterinary Support Activity may appoint a veterinary

support officer to coordinate with the regional animal disease eradication officer TF for any required
III-7

Operations

veterinary support. When directed by the appropriate supported commander, US Army Health Services

designates and deploys military specialists trained in foreign animal disease diagnosis, epidemiology,

microbiology, immunology, entomology, pathology, and public health.

(8) Assistance to District of Columbia in Combating Crime. The employment of DOD

military resources to civil authorities in combating crime in the District of Columbia will be limited to:

(a) Military and civilian technicians to perform non-law enforcement functions.

(b) Training facilities, such as classrooms, rifle ranges, and pistol ranges.

(c) Military equipment and supplies.

(d) Such other assistance, as directed by the President.

c. National Special Security Events. Special events are categorized by the DHS Special

Events Working Group (SEWG). Usually, other military operations will have priority over these missions,

unless directed otherwise by the SecDef. These events will be assigned a priority by the SEWG and will

normally be monitored by the combatant command responsible for the AOR in which they are conducted.

NSSE is a designation given to certain special events that, by virtue of their political, economic, social, or

religious significance, may be the target of terrorism or other criminal activity. The Secretary of Homeland

Security, after consultation with the Homeland Security Council (HSC), shall be responsible for designating

special events as NSSEs. When a special event is designated as an NSSE, the United States Secret

Service, as part of DHS, assumes the role of primary agency for the design and implementation of the

operational security plan. Events in this category are normally large events, generally with sufficient time

for planning (except state funerals). Multiple federal and state agencies may be involved, and will have

well-defined situation and operational areas. Planning for possible transition to disaster support is

inherent in these operations. Special events requiring DOD support could include the following types of

operations (note that any of these special events could be designated as NSSEs): World’s Fair, Super

Bowl, Olympics, World Series, and NASCAR events. Special events that will likely be designated as

NSSEs include: Presidential inaugurations, State of the Union addresses, Group of Eight summit meetings,

World Trade Organization Meetings, United Nations General Assembly meetings, Democratic and

Republican Party national conventions, and State funerals.

d. Periodic Planned Support. Periodic planned support is conducted to enhance civil military

relations within local communities. Examples of military involvement are listed following request guidelines.

(1) All requests for periodic planned support should adhere to the following guidelines:

(a) Responsible agency should request support from NG first. All states have established

processes for community relations support requests, generally through their public affairs offices.

(b) DOD capabilities requests should be submitted to the Office of the Assistant Secretary

of Defense for Public Affairs, Attn: Directorate for Community Relations and Public Liaison as Community

Relations/Public Affairs support (DODD 5410.18, Public Affairs Community Relations Policy) using
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DD Form 2535, Request for Military Aerial Support, or DD Form 2536, Request for Armed Forces

Participation in Public Events. Either form can also be submitted to Army, Navy, Marine, or Air Force

public affairs offices for processing.

(2) Sensitive Support Operations. Sensitive support to special activities provided under

DODD S-5210.36, Provision of DOD Sensitive Support to DOD Components and Other

Departments and Agencies of the US Government.

(3) Military Training Exchanges. This support can be provided incident to training as

innovative readiness training under DODD 1100.20, Support and Services for Eligible Organizations

and Activities Outside Department of Defense. Military training support can also be provided to

local first responders by military mobile training teams, installation personnel, or exercises preparation

and conduct. Civil authorities can request local installation commanders to provide combat service

support (CSS) (medical, transportation, supply, maintenance) or combat support (engineering or security).

Installations can provide support when it meets the requirements of innovative readiness training/support

as incidental to military training. (Title 10 USC, Section 2012).

(4) Community Relations. This support is provided under DODD 5410.18, Public Affairs

Community Relations Policy. This includes military bands, marching units, static displays as well as

requests for fly-overs, rotary wing support, Golden Knights, Blue Angels, or Thunderbirds aerial

demonstration support, and military support to ceremonies in the NCR. This support may cover

voluntary participation in community and civic activities by DOD personnel when they participate in a

personal capacity in an off-duty status. See DOD 5500.7-R, Joint Ethics Regulation, for additional

guidance regarding off-duty or personal capacity activities. All requests for periodic planned support

should adhere to the following guidelines:

(a) Responsible agency should request support from NG first. All states have established

processes for community relations support requests, generally through their public affairs offices.

(b) DOD capabilities requests should be submitted to the Office of the Assistant Secretary

of Defense for Public Affairs, Attn: Directorate for Community Relations and Public Liaison as Community

Relations/Public Affairs support (DODD 5410.18, Public Affairs Community Relations Policy)

using DD Form 2535, Request for Military Aerial Support, or DD Form 2536, Request for Armed

Forces Participation in Public Events. Either form can also be submitted to Army, Navy, Marine, or Air

Force public affairs offices for processing.

(5) Military laboratory support and/or testing and evaluation in DOD facilities can be

provided to civil authorities by agreement and is categorized as CS.

(6) Military working dog support provided per DODI 5525.10, Using Military Working

Dog Teams (MWDTs) to Support Law Enforcement Agencies in Counterdrug Missions.

(7) Support provided to the US Secret Service under Title 18 USC, Section 112,

“protection of foreign officials, official guests and internationally protected persons” which authorizes the

Attorney General to request the assistance of the armed forces to perform this function.
III-9

Operations

(8) Civil Air Patrol/Air Force Auxiliary support provided to Civil Authorities. Requests

for this support are submitted to and approved by Commander, Air Force North (AFNORTH).

(9) Aerial Damage Assessment. Aerial damage assessment (ADA) should be performed

by DOD assets only when such actions cannot be performed by local entities or other federal agencies

in a timely manner. Yet if tasked, ADA asset use should be efficient, effective, and utilize the least

intrusive, least costly means to accomplish the support mission within necessary timelines. Use of DOD

intelligence component capabilities in conjunction with aerial reconnaissance may be subject to intelligence

oversight for intelligence activities (foreign intelligence or counterintelligence collection), or may be subject

to operational parameters and limitation specified by the SecDef, if used for a mission other than an

intelligence activity, such as search and rescue, damage assessment, or incident awareness and analysis.

(10) Civilian Critical InfrastructureProtection

(a) America’s critical infrastructure includes a number of interrelated sectors that provide

the goods and services essential to the Nation (see Figure III-2). Our institutions of government guarantee

our national security and freedom and administer key public functions. Our defense industrial base

provides essential resources for military capabilities to help safeguard our population from external

threats and support force projection and sustainment. Our information and telecommunications sectors

EXAMPLES OF CRITICAL INFRASTRUCTURE

CRITICAL INFRASTRUCTURE

Vital Human Services

Telecommunications

Electric Power Systems

Gas and Oil Transportation

Water Supply System

Emergency Services

Continuity of Government Infrastructure

Transportation

Figure III-2. Examples of Critical Infrastructure
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enable economic productivity and growth, and are particularly important because they connect and help

control many other critical infrastructure assets. Our energy, transportation, banking and finance, chemical

industry, agricultural, and postal and shipping sectors help sustain our economy and touch the lives of

Americans daily. Because many of the assets associated with the critical infrastructure of the US are

interrelated or part of an integrated system (see Figure III-3), a successful attack on one critical node

could have a devastating impact on others and the country overall. While DOD is responsible for the

defense critical infrastructure, there may be instances where the President and SecDef will instruct DOD

to provide support to another agency. This support can take many forms but is normally associated with

disasters, emergency relief, and CrM and CM activities.

(b) The Uniting and Strengthening America by Providing Appropriate Tools Required

to Intercept and Obstruct Terrorism Act defines critical infrastructure as those “systems and assets,

Figure III-3. Critical Infrastructure Protection Framework

CRITICAL INFRASTRUCTURE PROTECTION FRAMEWORK

NATIONAL INFRASTRUCTURE

National Critical Infrastructure

and Key Assets

Defense Critical Infrastructure

Defense Industrial Base

Critical infrastructure are those assets so vital to the United States that their

incapacity or destruction would have a debilitating impact on national

security, economic security, and/or public health or safety. Within this

scope, the Department of Defense further identifies infrastructure essential

to our capability to execute the national military strategy, project power, and

defend the homeland. The defense industrial base is critical to the

preservation of this capability.
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Operations

whether physical or virtual, so vital to the United States that the incapacity or destruction of such systems

and assets would have a debilitating impact on security, national economic security, national public health

or safety, or any combination of those matters.” Critical infrastructure protection framework is detailed

in Figure III-3. In addition to our critical infrastructure, our country must also protect a number of key

assets — individual targets whose destruction would not endanger vital systems, but could create local

disaster or profoundly damage our Nation’s morale or confidence. Key assets include symbols or

historical attractions, such as prominent national, state, or local monuments and icons. In some cases,

these include quasi-public symbols that are identified strongly with the United States as a nation, and fall

completely under the jurisdiction of state and local officials or even private foundations. Key assets also

include individual or localized facilities that deserve special protection because of their destructive potential

or their value to the local community.

See DODD 3020.40, Defense Critical Infrastructure Program (DCIP),for additional information on

roles and responsibilities for DOD components to assure DOD’s critical assets and infrastructures

are identified and managed.

2. Domestic Incident Management Response Operations and Considerations

The NRP identifies prevention, preparation, response, and recovery as the four stages of incident

management operations.

a. Prevention. CS missions require commanders to consider, within their legal limits, what

prevention and preparation activities can be undertaken prior to an incident. Increasing public awareness

of DOD countermeasures, elevating the national Homeland Security Advisory System, and assessing

intelligence are some of the ways to help with prevention.

b. Preparation. DOD’s focus for CS missions is to prepare, as much as possible, prior to an

incident occurring, and when practical, stage assets to facilitate a rapid response.

c. Response. DOD CS operations will normally be conducted during the response stage of

domestic incident management. Response operations focus on those lifesaving and sustaining functions

required by the population in the disaster area. Military forces normally redeploy as operations transition

from the response to the recovery stage. Transition planning is based on completion of those CS tasks

being accomplished by DOD forces, or unfinished mission assignments being transferred back to civil

agencies at the federal or state level. This practice allows the military to return to its defense roles as

soon as practicable.

d. Recovery. Recovery operations begin the process of returning the community infrastructure

and services (both municipal and commercial) to a status that satisfies the needs of the population. The

extent to which DOD CS operations remain involved in this process requires careful consideration.

3. Operational Phases

CS operations are generally conducted in five (5) phases: shaping, staging, deployment, civil

support operations, and transition (see Figure III-4). During planning, the JFC establishes conditions,
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objectives, or events for transitioning from one phase to another. Phases are designed to be conducted

sequentially, but some activities from a phase may begin in a previous phase and continue into subsequent

phases. A civil support operation may be conducted in multiple phases simultaneously if the JOA has

Figure III-4. Five Phases of a Civil Support Operation

FIVE PHASES OF A CIVIL SUPPORT OPERATION

Shaping

Continuous SA &

Preparedness;

Actions include

Interagency

Coordination,

Exercises, IO,

PAO

ID Potential

CS Mission

or Directed

by SecDef

Deployment

Response

Forces

Receive

Mission

Response Forces

Begin

Redeployment

and Authority is

Transferred to

Their Respective

Commands

Civil Authorities

Prepared to

Assume

Responsibility

Forces Ready

to Conduct

Mission

CS Response

Operations in

AO

Civil

Authorities

Assume

Responsibility

CCIR

INDICATORS - WX

- INS

- INTEL

Staging

Civil

Support

Operations

Phases Overlap, or At Times

Are Concurrent

Immediate

Response

Deployment Transition

SITUATIONAL AWARENESS AND ASSESSMENT

















Transition Begins

Forces Redeploy

Incrementally

Transfer of

OPCON

C2 Stands Down

MOEs and MOPs

Met

Report Costs

Maintain

Awareness

Capture Lessons















Maintain COP

Conduct CS

Assess Mission

Report CCIR

Report Costs

Transition

Planning

Implement

Transition











Activate and

Deploy C2

Establish RUF

Establish LNOs

Movement of

Forces

JRSOI











Deploy DCO/

DCE/CAE/

EPLOs

Position

Forces to

Facilitate

Response

ID C2, LOG,

MED

Establish BSI

RFF













Gain

Situational

Awareness

Alert DCO

Identify Units

Nominate BSI

Conduct

Training and

Rehearsals

Develop COP

AO Area of Operations

BSI Base Support Installation

CAE Command Assessment Element

C2 Command and Control

CCIR Commander’s Critical Information

Requirements

COP Common Operational Picture

CS Civil Support

DCE Defense Coordinating Element

DCO Defense Coordinating Officer

EPLO Emergency Preparedness

Liaison Officer

ID Identity

INS Incident of National Significance

INTEL Intelligence

IO Information Operations

JRSOI Joint Reception, Staging, Onward

Movement, and Integration

LNO Liaison Officer

LOG Logistics

MED Medical

MOE Measure of Effectiveness

MOP Measure of Performance

OPCON Operational Control

PAO Public Affairs Office

PTDO Prepare to Deploy Order

RFF Request for Forces

RUF Rules for Use of Force

SA Situational Awareness

SecDef Secretary of Defense

WX Weather

INCIDENT
III-13

Operations

widely varying conditions. For instance, the commander may begin the transition phase in areas where

military support is no longer required, while remaining in the civil support operations phase in other

areas.

a. Phase I, Shaping. Shaping is continuous situational awareness and preparedness. Actions in

this phase include interagency coordination, exercises, and PA outreach. Shaping activities continue

through all phases.

b. Phase II, Staging. Phase II begins with the identification of a potential CS mission, or when

directed to provide CS by the SecDef. Actions in this phase include identifying force capabilities for

response and placing them on increased alert, identifying materials and supplies (rations, medical items,

tents, cots, etc.) for response and preposition, coordinating with OGAs for a mutually supporting response,

and coordinating with NGB and state NG JFHQ elements to ensure DOD unity of effort. The Staging

Phase ends with the issuance of a prepare to deploy order.

c. Phase III, Deployment. Phase III begins with response force deployment. However, force

deployment can occur at any time in any phase, except phase I (Shaping). Forces are phased into and

out of the JOA based on requirements to meet federal agency requests for federal assistance, the

changing operational focus (crisis response to stabilization, then to sustainment operations), and as

specialized capability requirements are identified. The deployment phase ends when response forces

are ready to conduct operations in the JOA.

d. Phase IV, Civil Support Operations. Phase IV begins when the CS response commences.

This phase includes the rapid employment of DOD capabilities in support of civil authorities. There will

be considerable overlap between this phase and the previous deployment phase as units arrive in the

operational area and begin providing support. Phase IV ends when supported ESFs no longer require

DOD support.

e. Phase V, Transition. This final phase begins when DOD support to ESFs is no longer required.

The transition phase ends when DOD response forces begin redeployment and are transferred back to

their respective parent organizations.

4. Civil Support Planning Considerations

a. Environmental Considerations. Environmental considerations are an integral part of the

mission planning and operational decision-making process. All joint operations within the US and US

possessions and territories shall be conducted in compliance with applicable federal, state, and local

environmental regulatory guidance. Adverse environmental impacts should be avoided or mitigated

when practicable, based on mission requirements and response to emergency situations.

For further information, see JP 3-34, Joint Engineering Operations.

b. Force Protection (FP). FP efforts in support of CS operations is central to achieving DOD

mission assurance. It includes actions taken to prevent or mitigate dangerous conditions that could harm

DOD personnel, resources, facilities, and critical information in an all-hazards environment. FP measures
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can be defensive in nature, such as those used to reduce force and installation vulnerability to terrorist

attacks or protect against CBRNE effects, or offensive, such as those taken to prevent, deter, and

respond to terrorism. By conserving the force’s operating capabilities so that they can be applied at the

decisive time and place, FP ensures the effective employment of the joint force in CS operations.

c. Operations. Ongoing military operations and HD requirements have priority over CS operations

unless otherwise directed.

d. The duration and scope of DOD involvement will be related to the severity and magnitude of

the event, and the requirements for DOD CS operations.

e. Facility requirements will first be met through existing local facilities, preferably government

owned, organic portable or relocatable substitute facilities, or field construction.

f. DOD forces will rely on DOD facilities for support to the maximum extent possible. Short-term

leasing may be a necessary option depending on location and duration. No occupation of private land

or facilities is authorized without specific legal authority. Real property support may be obtained from

the GSA, USACE, Naval Facilities Engineering Command, or other government agencies.

For information on BSI/joint reception, staging, onward movement, and integration (JRSOI)

refer to Appendix C, “Base Support Installation/Joint Reception, Staging, Onward Movement,

and Integration,” and JP 3-35, Joint Deployment and Redeployment Operations.
CHAPTER IV

SUPPORTING AND SUSTAINING ACTIVITIES

IV-1

“In response to Hurricane Katrina, the Naval Operational Logistics Support Center

(NOLSC) took immediate action to support coordination of the logistics relief efforts.

Time was critical in providing basic relief such as medical supplies, food, and

water to prevent further loss of life in the affected Gulf Region.”

Robert L. Dodson

Comments on Hurricane Katrina Relief Operations

Navy Supply Corps Newsletter, Nov-Dec 2005

1. General

Most CS operations are support intensive. In planning for CS, support planners face

ambiguities about how to prepare for and predict types of contingencies military forces will

confront. US military forces are organized with personnel and equipment to perform specific

functions, but also to support their own units. For instance, the C2 system inherent in military

units provides a significant advantage when deployed in the potentially bare base environment

created by a catastrophic incident.

2. Public Affairs

 During CS operations, military PA activities, public information actions, and news media access to

the CS operational area, are subject to approval of the primary agency. The primary agency may

establish a joint information center (JIC) to coordinate PA and public information actions. The military

must coordinate all PA activities and comply with PA guidance from the JFO.

a. Media Access. News media access to CS operational areas is subject to the approval of the

federal agency with lead responsibility; however the public’s impression of the assistance depends to a

great extent on the media. This perception also influences the cooperation and coordination between

military and civilian leaders. Positive public support facilitates mission accomplishment. Lack of public

support, on the other hand, can seriously impede the effectiveness of military forces during the execution

of CS operations. Additionally, the ability of today’s media to transmit instantaneous reports can shape

the way the general populace views the role, use, value, and success of the military.

b. DOD Support. There are measures that DOD forces can employ to assist CS authorities.

DOD may emphasize that forces stand ready to support and assist CS authorities in a variety of capacities.

Emphasis will be placed on DOD capability to save lives, prevent suffering, and mitigate great property

damage. Services may act unilaterally by updating force posture changes, readiness, and training.

However, throughout any crisis or consequence management scenario, civil authorities will remain in

charge and DOD participation will be in support of a federal agency with lead responsibility.

c. Military PA. In fulfilling its CS role, the combatant command will be an active member of the

federal response community. Military PA officers operate in an interagency environment, with emphasis

on cooperation, coordination, and unity of effort. Complete integration of PA personnel in all staff

planning is essential to ensure an effective PA operation. The PA staff must be included in the planning
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JP 3-28

and conduct of CS operations, particularly for those conducted within the homeland, to ensure that the

plan is enriched by the communicators who contribute to the process and to ensure that the plan is

explained and communicated properly during execution. The PA strategy will have three main points of

effort aligned with the traditional PA functions: public information, command information, and community

relations.

See JP 3-61, Public Affairs, for additional information.

3. Religious Support

a. General. Religious support (RS) is defined as the full spectrum of professional duties performed

by chaplains in their dual role as religious leaders and military staff officers. RS in joint operations is

dedicated to meeting the personal free exercise of religion needs of military and other authorized members

and providing commanders with professional advice regarding the dynamic influence of religion and

religious belief in the operational area. The purpose of a religious support team (RST) is to provide for,

develop, and strengthen the spiritual and moral well-being of all members of the command. Chaplains,

assisted by enlisted support personnel, provide for religious worship, rites, sacraments, ordinances, and

ministrations. The RST deploys during CS operations for the primary purpose of providing RS to

authorized DOD personnel. In this context, authorized DOD personnel is defined as military members,

their families and other authorized DOD civilians (both assigned and contracted) as determined by the

JFC. The Establishment Clause of the US Constitution generally prohibits chaplains from providing

religious services to the civilian population. However, following certain rare and catastrophic large-scale

disasters, local and state capabilities of all types, to include spiritual care, may be overwhelmed. In these

situations RSTs may serve as liaison to NGOs (including faith-based organizations [FBOs]) when

directed by the JFC. In addition, the primary agency, in coordination with local and state authorities,

may determine that additional caregivers are needed and may request DOD chaplains to provide care,

counseling, or informational services to non-DOD civilians. These requests may be coordinated through

the DCO, commander, JTF (CJTF) and/or CCDR, and must be validated by JDOMS and approved

by SecDef. This ministry support will be limited to the designated disaster control area and will cease

with the termination of emergency operations. Moreover, the primary focus of military chaplain ministry

will remain DOD personnel. Military chaplains will follow command direction, joint doctrine, supervisory

chaplain guidance, and legal counsel regarding permissible chaplain activities while assisting during CS

operations.

b. The Religious Support Team during Civil Support

(1) The RST has a vital supporting role in achieving CS operational objectives. At the

tactical level, chaplains provide for the free exercise of religion, impart ethical guidance, advise

commanders on religious issues affecting military operations, and provide RS to authorized

DOD personnel. When directed, the RST may serve as liaison to NGOs or FBOs and assist in

coordination of CS.

(2) DOD and NG chaplains are religious ministry professionals with training, education,

and experience comparable or equivalent to the certification standards of organizations active in

disaster response such as the ARC and national volunteer organizations active in disasters.
IV-3

Supporting and Sustaining Activities

(3) RST Capabilities. RS includes many duties and responsibilities such as grief counseling

and coping with stress that are secular or nonreligious and have the intended ultimate effect of providing

comfort and stability to authorized DOD personnel. Moreover, chaplains and their enlisted assistants,

as members of the military, also have training such as suicide prevention and awareness, first aid, and

survival training which can be beneficial during a crisis situation.

c. Principles for RS during CS

(1) Chaplains serve a religiously diverse, pluralistic population. During CS operations,

military units operate in religiously diverse civilian communities. As such, chaplains must be

willing to support, directly and indirectly, the free exercise rights of all authorized DOD personnel

regardless of their religious beliefs.

(2) Joint area RS will be employed when necessary. Joint area RS may include

coordinating RS coverage across command and Service component lines to accommodate the

religious needs of all authorized DOD personnel. As a primary mission, the RST will support

the command to which assigned. Pursuant to a commander’s orders or religious support plan

(RSP), the RST may also be responsible for providing joint area RS to units without assigned

chaplains and to personnel from low density faith groups. An AC RST, when directed, may

provide RS to NG personnel serving in state active duty or Title 32 USC status during emergency

or exigent circumstances. Likewise, IAW state law and when directed, an NG RST in state

active duty or Title 32 USC status may provide RS to AC personnel during emergency or exigent

circumstances. Commanders will coordinate joint area RS consistent with the RSP and legal

counsel.

d. RS Coordination. Coordination and collaboration between DOD chaplains and civilian

clergy, religious ministry professionals (RMPs), and caregivers enhances mission success, the

recovery process and situational awareness. Response and recovery following disasters and

catastrophic events will require all local, state, tribal, federal, and nongovernmental resources

working in a cooperative partnership.

“Local, county, and state resources, including National Guard forces under Title

32, normally constitute the first line of response to crisis management and

consequence management events. Therefore, as a general rule, chaplains in

Title 10 status will not be the first to respond to a natural or man-made disaster.”

JP 1-05, Religious Support in Joint Operations

(1) National Guard

(a) Except when a military installation is directly affected, DOD forces and chaplains in

Title 10 USC status will not generally be the first to respond to a natural or man-made disaster. The NG,

under the command of the governor or adjutant general may respond first. The JFHQ-State staff

chaplain is responsible for coordinating RS for NG forces serving in state active duty or Title 32 USC
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JP 3-28

status. NG forces coordinate disaster response with the NGB-Office of the Chaplain (NGB-OC).

States may invoke emergency management assistance compacts (EMACs) to request assistance from

other states.

“The Federal response should better integrate the contributions of volunteers

and nongovernmental organizations into the broader national effort.” —The

Federal Response to Hurricane Katrina: Lessons Learned, White House Report,

2006 “Faith-based organizations (FBOs) and community-based organizations

(CBOs) have a long tradition of helping Americans in need...FBOs and CBOs

have a long tradition of aiding victims of disasters...FBO/CBO and emergency

management partnerships could be helpful in disaster mitigation.”

Implementation Plan for the National Strategy for Pandemic Influenza,

Homeland Security Council, 2006

(b) Policies and procedures will be established to ensure coordination of the

activities of all DOD chaplains. Combatant command chaplains and JTF chaplains will coordinate

chaplain activities with the NGB-OC and involved JFHQ-State chaplains, to the maximum

extent possible, to ensure collaboration and cooperation. In particular, combatant command

chaplains coordinate chaplain response with the NGB-OC.

(2) United States Coast Guard. During domestic incident with maritime dimensions,

the USCG will respond. USCG chaplains provide RS to USCG personnel and also conduct first

responder support and liaison with NGOs, FBOs, local clergy, and RMPs. Combatant command

chaplains and JTF RSTs will coordinate activities with USCG chaplains to ensure collaboration

and cooperation.

(3) Civil Air Patrol/Air Force Auxiliary. CAP has nearly 700 chaplains nationwide

who meet the same ecclesiastical standards as active-duty Air Force chaplains. Many have been

trained in critical incident stress management and are well suited to provide rapid response CS

in a variety of scenarios.

(4) Interagency and Nongovernmental Organizations. Coordination with federal,

state, and local agencies as well as FBOs and community based organizations operating in the

AOR is essential for CS mission accomplishment. At disaster sites, DOD and civilian chaplains,

clergy, and other RMPs may be present. The JTF chaplain will be responsible for coordinating

the activities of DOD chaplains, as well as the activities of civilian chaplains, clergy, and RMPs

supporting the DOD community. At the national and theater level, combatant command chaplains

will coordinate chaplain activities with OGAs and with national agencies that are operating in

the AOR. This coordination can be conducted through the civil-military operations center, or

other functionally similar staff section. For example, agreements with civilian agencies and

NGOs may facilitate and enable RS to DOD personnel during increased or large magnitude disaster

responses. The support of chaplains affiliated with other federal agencies such as the FBI or from

localities may be needed to provide RS to DOD personnel of low-density faith groups. Normally, a

national agency such as the ARC or the National Association of Chaplains serves as the “gatekeeper” to

credential civilian clergy responding to disasters. National coordination efforts are needed to build
IV-5

Supporting and Sustaining Activities

partnerships between DOD chaplains and civilian clergy and RMPs and other agencies responding to

disasters.

See JP 1-05, Religious Support for Joint Operations, for more information.

4. Logistics

The relative combat power that military forces can bring to bear against an enemy is

constrained by a nation’s capability to plan for, gain access to, and deliver forces and materiel to

the required points of application across the range of military operations. Even though CS

operations do not involve “combat power” or an “enemy,” this construct holds true for the

conduct of CS operations because during times of crisis, DOD provides vital logistic support to

civil authorities.

a. Authorities and Responsibilities

(1) The authorities and responsibilities for logistic operations in support of CS are

largely the same as logistic operations for any other DOD mission set. Some notable exceptions,

as indicated in paragraph 4b below, apply to CS operations within the land, airspace, and territorial

waters of the United States.

(2) The JP 4-0 series of publications for logistic support applies in CS. However,

logistic planners consider both military and civil requirements and capabilities concurrently to

avoid duplication. Implementation and execution of logistic functions remain the responsibility

of the Services and the Service component commanders. Each Service is responsible for the

logistic support of its own forces, except when logistic support is otherwise provided for by

agreements with national agencies, allies, or another Service.

(3) In the case where coalition operations are used for CS missions, coalition partners

are ultimately responsible for providing logistic support for their own forces. However, the

geographic combatant commander (GCC) should strive to negotiate, conclude and integrate the

use of acquisition and cross-servicing agreements and associated implementing arrangements

and any other vehicle necessary to provide logistics support.

b. Logistics Disciplines. The primary focus of the CSS effort is to sustain and assist DOD

forces employed in CS operations. In support of CS missions, the Services are responsible for

providing CSS to their respective forces, which is consistent with joint logistics doctrine.

Responsibilities for the disciplines within logistics as described in existing joint doctrine apply

to CS missions, except as noted below:

(1) Supply. Supply is the function of acquiring, managing, receiving, storing, and issuing the

materiel required by forces. Standard doctrine for supply support in joint logistics states that GCCs will

establish policies regarding supply buildup rates or theater stockage levels in their respective AOR.

However, when operating in US possessions and territories, forces accomplishing CS missions will

receive sustainment support from their respective owning Service, as opposed to the CCDR. The
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JP 3-28

ability for the Services to use home station stocks and existing contracts make this the most effective

method for sustaining the force. However, care must be taken to ensure that any expansion of existing

contracts or development of new supply contracts in the operational area do not adversely impact other

federal, state, or local contracting efforts. All classes of supply will need to be considered. However,

some classes, such as Class I (subsistence), Class II (clothing, tools, and administrative supplies), Class

IV (construction material), Class VI (personal demand items), and Class VIII (medical material) will

more than likely require close consideration. The DLA may provide commodity support directly to

FEMA upon receipt of a funded request to facilitate support for US populations impacted by disasters.

(2) Maintenance. Maintenance includes actions taken to keep materiel in a serviceable

condition or to upgrade its capability. An effective maintenance program, especially of major

end-items and testing and diagnostic equipment, is vital to ensure that the required support is

provided. Monitoring equipment must be calibrated and a system established to repair/calibrate

on site or to return and replace with a like item. Again, the accessibility to existing contracts and

home station capability ensure this is the most expedient method for equipment sustainment.

(3) Transportation. Transportation involves the movement of people, equipment,

and supplies via ground, water, and air to and within the JOA. The Defense Transportation

System is that portion of the global transportation infrastructure that supports DOD commonuser transportation needs across the range of military operations. With SecDef approval, DOD

may provide transportation support via established processes found in the NRP.

(a) Airlift priorities for CS are outlined in CJCSI 4120.02, Assignment of Movement

Priority. The national importance of the CS mission is reflected in the elevated movement

priorities that can be applied for these missions as directed by the President or SecDef.

(b) The Joint Operation Planning and Execution System (JOPES) will be used to

direct and control the movement of forces into and out of a JOA. Force deployments will be

time-phased to meet operational mission requirements per validated priorities in JOPES. The

respective GCC is the validating authority for JOPES and special assignment airlift missions’

movement requirements within the AOR.

(c) The CCDR’s joint deployment and distribution operations center (JDDOC) is

composed of personnel from the combatant command and national partners as required (i.e., US

Transportation Command, Defense Logistics Agency, the Services, and other organizations).

While the organizational construct will be situational based, it will operate under the direction of

the supported combatant command. The JDDOC will implement command movement priorities,

anticipate and resolve transportation shortfalls, synchronize force flow and distribution, and

provide in-transit visibility.

(4) Engineering. General engineering provides the construction, operation, maintenance,

damage repair, and reconstitution of facilities, roads, and utilities and logistic infrastructure.

(a) Purpose, Scope, and Limitations. The primary focus of the DOD general

engineering effort is to sustain and assist DOD forces employed, force bed-down work, emergency
IV-7

Supporting and Sustaining Activities

stabilization/repair of damaged critical infrastructure, opening lines of communications (roads/debris

clearing) and rendering assistance to the designated BSIs. In general DOD engineer forces will be

called upon when local, state, tribal, federal, and contract resources are fully engaged, exhausted, or

timely action is necessary to save lives and prevent further human suffering and loss of property.

(b) Concept of Engineer Support. DOD engineer forces may be tasked with

short notice to assist civil authorities as a result of a natural or man-made disaster. DOD engineer

forces may be engaged in CS operations directly by the local commander under immediate

response authority or indirectly in support of a primary agency through the NRP. An example of

engineer support is the assistance DOD engineer forces may be requested to provide to enhance

law enforcement mobility and countermobility efforts by constructing roads, bridges, and vehicular

barriers, and by erecting fences and lights.

1. Maximum consideration will be given to the use of locally available

commercial services, facilities, and support structures, followed by local tribal, state, and federal

resources before DOD engineers are engaged. The federal response will be conducted in

accordance with the NRP and NIMS.

2. A broad force perspective for achieving engineering objectives is necessary.

Engineer support may be garnered from local, state, and federal resources via a multitude of

avenues or agreements. Non-federalized NG engineer forces may be actively conducting CS

operations within the JOA along with Title 10 USC engineer forces.

3. USACE is the DOD element, acting as the coordinating agency for ESF

#3, “Public Works and Engineering,” and supporting agency for ESF #6, “Mass Care, Housing,

and Human Services.” Under Public Law 84-99, USACE authority also includes response to

flooding incidents. It is when these resources are fully engaged and unable to accept additional

tasks that DOD engineer resources may be required to assist or when a unique DOD engineer

capability is needed.

(c) General Priority of Engineer Actions. Military engineer capabilities will

be requested to provide support to other federal agencies IAW the NRP through the executing

JTF. Based on the type of mission, the tasks may differ, but the general priority is:

1. Force bed-down with antiterrorism force protection considerations.

2. Emergency stabilization and repair of damaged critical infrastructure.

Repairs/work-arounds to other critical public utilities, services, and facilities that will help restore

the ability of the local authority to manage its own recovery efforts.

3. Emergency clearing of debris from streets, roads, bridges, airfields, ports, and

waterways in support of recovery and humanitarian needs.

4. Immediate humanitarian needs of the dislocated populace, such as the

construction of temporary shelters and support facilities.
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5. Demolition of damaged structures and facilities that pose a significant

risk to the public.

(d) Construction Policy. New construction during CS operations should not be

expected. However, when new construction is authorized, adherence to all local, state, and

federal codes and standards should be anticipated. Use of Service construction standards, planning

factors, development priorities, and cost estimates are encouraged. Expedient construction should

be considered. Expedient construction includes several types of rapid construction techniques

such as prefabricated buildings, inflatable buildings, and clamshell structures. These construction

techniques can be selectively employed with minimum time, cost, and risk and offer deployed

forces another source of required temporary facilities. Temporary facilities may be required or

requested in certain cases during the initial phase of operations or in support of the federal

agency with lead responsibility.

(e) Contractors. Contractors will be the primary means used to accomplish

engineer/construction requirements in CS. Ample commercial capacity in heavy equipment

and materials should be available in the JOA. DOD engineer capabilities coupled with commercial

sector and contract capabilities provide virtually unlimited engineering depth and breadth.

Coordination between USACE and potential construction contracting agencies at local, state

and federal levels must be conducted to ensure efficient resource utilization and economies of

scale when possible.

(f) Allied and Coalition Forces. The availability and possible use of allied and

coalition civil engineering forces should not be considered during mission planning. These

forces may be made available to support operations, particularly if a CS event occurs in close

proximity to national borders. However, DOD component planners should not plan to rely on

international assistance as the basis for response and cannot accept military-to-military assistance

to meet a CS RFA.

(g) CS operations are affected by numerous local, state and federal laws and

regulations. Most of these laws and regulations are those that civil engineers deal with on a daily

basis. The proper flow and authorization of the mission assignments must be accomplished.

This will avoid potential issues such as environmental impacts, funding sources, scope, and

authorities of work. Close coordination with the staff judge advocate, and the CCDR’s staff will

help ensure many potential issues are avoided entirely, or are quickly overcome.

(h) Environmental. DOD forces employed in CS operations are responsible for

protecting our environment. Commanders will employ environmentally responsible practices

that minimize adverse impacts on human health and the environment. DOD goals are to initiate actions

as soon as possible to curtail further environmental damage, resolve environmental impacts, and comply

with all applicable laws to the maximum extent possible.

1. During all operations, strategies will be developed to reduce or eliminate negative

impacts on the environment. DOD will be in support of a primary agency, and environmental
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Supporting and Sustaining Activities

responsibilities will remain with the primary agency. However, this does not release DOD from responsibility

to plan and conduct operations in a manner responsive to environmental considerations. Timely CS

response in crisis circumstances may make it necessary to take immediate action without preparing the

normal environmental planning documents. Close coordination with local, state, and federal agencies

during CS actions is needed to avoid negative environmental consequences.

2. Documenting conditions and actions as soon as possible before, during,

and after operations in the JOA will facilitate resolution and closure of environmental issues. An

active environmental review of CS operations should be accomplished to identify possible

environmental issues before a negative impact occurs. Close liaison and communication with

the applicable DOD regional environmental coordinator will also aid in ultimate resolution of

environmental issues with local, state, tribal and federal agencies. Environmental impacts will

be addressed as soon as possible once operations have stabilized. Emergency exemptions may

be needed for disposal of contaminated and hazardous material. DOD forces should direct their

efforts to properly identify, contain, document, and transfer environmental issues to civil authorities

as soon as possible.

For additional information on engineer organizations and assets of DOD Military Services, see

JP 3-34, Joint Engineer Operations.

(5) Health Service Support (HSS). Within the NRP, the delivery of public health

and medical services falls under ESF #8, “Public Health and Medical Services.” The function’s

primary agency is DHHS. This function is the mechanism for coordinated federal assistance to supplement

state, local, and tribal resources in response to public health and medical care needs (to include veterinary

and/or animal health issues when appropriate). As a supporting agency, DOD through the DCO will

coordinate these services. DOD employs and integrates medical response through the capabilities of

care; first responder, forward resuscitative care, en route care, theater hospitalization and in some cases

definitive care. The focus of DOD medical support is to restore essential health services in collaboration

with the state and local health authorities. The scope of the medical response will vary with the type and

scale of emergency. However, a clear focus must remain on transition to other medical support

organizations, particularly if taking a lead role during the initial stages of the response. The military health

system will, in most cases, have a scaled response to CS emergencies; first under immediate response

and mutual aid agreements with local and state healthcare systems and then through the NDMS, and

finally through CS assigned missions.

(a) Immediate Medical Response. Acute situations may require response prior to

detailed DOD and HSS coordination. Imminently serious conditions resulting from any civil emergency

may require immediate action to save lives, prevent human suffering, or mitigate great property damage

and is covered under the immediate response provision in DOD policy. When such conditions exist and

time does not permit approval from higher headquarters, local military commanders and responsible

officials from DOD components are authorized, subject to any supplemental direction that may be

provided by their DOD component, to take necessary action to respond to requests of civil authorities.

Medical immediate response is usually coordinated locally through NDMS FCCs, of which nearly half

are DOD medical treatment facilities (MTFs). Federal, state and local health systems regularly train and

exercise disaster preparedness with emergency services as a part of certification and licensing. In
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escalating civil emergencies with pending JTF involvement, FCC and MTF representatives can often be

valuable sources for situational awareness.

(b) HSS Operations. Health services includes patient movement, hospitalization, health

service logistics, blood management, vector control, preventive medicine measures, health surveillance,

veterinary, and dental services.

For more details, see JP 4-02, Health Service Support.

1. Responsibilities. The JTF surgeon advises the CJTF on medical issues,

medical plans, policies, and procedures for assigned units. The JTF surgeon’s cell provides the central

location for medical planning and operations. The staff monitors current and future operations and

conducts required planning support. The JTF medical staff must maintain close contact with joint

regional medical planners office at the combatant command and with the DCO to carry out ESF #8,

“Public Health and Medical Services.” The JTF medical staff alerts DOD NDMS FCCs (Army, Air

Force, and Navy) to activate their patient reception plans, if required. Some of the obstacles operators

will face are:

2. Inappropriate Care Distribution. Often the first casualties present for

care are the least injured. Failure to organize resources in recognition that more seriously injured

individuals may not be present until much later may leave the most injured with limited access

to lifesaving care they need. To ensure that medical resources are appropriately allocated across

the affected area, care delivery must be prioritized at both the local and regional level.

3. Unequal Distribution of Casualties. Casualties tend to be concentrated

locally and then presented to the nearest health facility. This may overwhelm local facilities,

while other facilities in the area are under used.

4. Multiple Casualty Entry Points. The emergency medical service (EMS)

is the usual route of entry into the health care system for casualties. In mass casualty situations,

casualties access the system through non-EMS entry points (e.g., private means, police transport,

and search and rescue). This results in multiple, uncontrolled demands for health care and

concentrates the demands at nontypical locations. Also, nonlocal responders arrive to help but

are not familiar with the local health system, adding to the overall confusion.

(c) Health Threat. The purpose of the medical portion of the commander’s estimate

is to identify the HSS requirements. Because there are so many variables that affect the need for HSS,

an up-front analysis of multiple sources of intelligence or information, including information gathered by

trained medical personnel on scene is required. Medical personnel need to evaluate the safety and

vulnerability of local food and water sources and local medical capabilities, perform an environmental

risk assessment and a vector-pest risk assessment and determine the adequacy of hygiene in local

billeting and public facilities as early as possible. It is critical to have medical personnel on all survey

teams or advance party detachments. Identifying critical health risk factors and short term primary and

emergent care along with the magnitude of the disaster’s impact and potential health consequences for
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Supporting and Sustaining Activities

military forces and the population at risk are critical elements to developing appropriate courses of

action for the commander.

(d) Damage to the Healthcare Infrastructure. The level of damage to the healthcare

infrastructure and the level of involvement of the other civil medical organizations is a starting point when

developing situational awareness for the commander’s estimate. Local or regional FCC/MTF may be

able to provide initial estimates of the situation based on local health system contacts. In general,

requirements depend on population health issues and the impact on local health service capabilities.

(e) Population at Risk. Highest priority health services include the most appropriate

and effective interventions to reduce death and disease as determined by health estimate. Usually, the

same groups who are most vulnerable in normal times are at most risk during emergencies and disasters.

They include people whose health is already compromised (e.g., people with preexisting illness, serious

chronic diseases, or the elderly). In situations where injuries are high, the elimination of on-scene health

hazards along with search and rescue and emergent surgical services, may be the highest priority. This

type of support is generally short in duration, due to patient survivability time limitations and the ability to

rapidly build appropriate force levels for these tasks. In situations where casualties are low and displaced

persons are high, preventive medicine measures will likely be the highest priority health services required

(e.g., control of infectious or communicable diseases).

For more information, see JP 4-02, Health Service Support.

(6) Mortuary Affairs. While the GCCs are responsible for coordinating DOD mortuary

affairs operations within their AORs, the local, territorial, or state medical examiner or coroner will most

likely maintain jurisdiction over both military and civilian fatalities, including mass casualties events. (Note:

a commander’s responsibility to ensure casualty assistance services to the unit members and their nextof-kin is different from the authority to engage in the medicolegal death investigation.) Simply put, in the

domestic environment the individual with jurisdiction has authority to order and perform an investigation

to include an autopsy or an appropriate medicolegal death examination on human remains. Jurisdiction

varies depending on geographical area and is dependent upon federal, state, county, or local laws.

When there is a death of a Service member, jurisdiction will almost always be either exclusive federal or

concurrent. Concurrent jurisdiction means that a local medical examiner or coroner has the authority to

conduct the medicolegal death investigation, including autopsy, but may waive jurisdiction to the military

or request Armed Forces Medical Examiner (AFME) assistance. Deaths in areas of exclusive federal

jurisdiction belong to the office of the AFME. Military bases are not necessarily under exclusive federal

jurisdiction, and the local staff judge advocate should identify the base’s jurisdiction before an event or

be consulted during early stages of the response phase. Federal law (Title 10 USC, Section 1471)

ensures that the AFME may conduct its own forensic pathology investigation to determine the cause or

manner of death of a deceased active duty DOD person if such an investigation is determined to be

justified. However, this activity may or may not occur in conjunction with local medicolegal authorities’

investigation. If the AFME believes the local authority’s medicolegal investigation was not sufficient for

the needs of DOD, the remains may be transferred to the AFME before being released to the legal nextof-kin. Federal law also gives exclusive jurisdiction to the AFME for the President, his/her direct staff,

and other key elected officials in the Federal government. Military mortuary affairs units can be deployed

in order to search, recover, transport, and temporarily store remains in support of civil authorities. Few
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of these units are available in the force structure and they are best utilized to augment existing local and

federal capabilities to respond.

For more information, see JP 4-06, Mortuary Affairs in Joint Operations.

(7) Combat Service Support. The primary focus of the CSS effort is to deploy,

sustain, and assist military forces employed in CS operations and the Services are responsible

for providing CSS to their respective forces. Normally, the GCC will retain overall directive

authority for logistics in supporting CS missions, but may delegate directive authority for common

support capabilities to designated CJTF(s) to the maximum extent practicable.

5. Intelligence Support

a. Introduction

(1) The parameters under which DOD operates are different in the US than they are

overseas. For example, the lines between counterintelligence (CI) and force protection information

are now blurred. Whereas one typically dealt with foreign information and the other domestic,

both now involve elements of foreign and domestic information. Military commanders’ need

for information and intelligence within the homeland is on the rise — they expect force protection

information and counterintelligence to be integrated into domestic and domestic support operations

due to a heightened awareness of potential terrorist threats.

(2) These needs and expectations pose unique issues in the information and intelligence

gathering arena. DOD intelligence components are subject to one set of rules referred to as

intelligence oversight. Everyone else in DOD is subject to a different set of rules governed by

DODD 5200.27, Acquisition of Information Concerning Persons and Organizations Not Affiliated

with the Department of Defense. Therefore, the commander must direct his need for information

or intelligence to the right component — the component with the capability and authority to

achieve the commander’s intent.

(3) The DOD intelligence component is responsible for intelligence; information comes

from non-intelligence DOD components. Figuring out the nature of the data and the right unit to

gather it are areas that often require judge advocate input as to legal authorities for information

gathering. Commanders and their staffs must carefully consider the legal authorities and policy

when planning domestic and domestic support operations. DOD intelligence components have

traditionally had limited involvement in domestic and domestic support operations. There are two

reasons for this.

(a) One, as mentioned before, until recently DOD itself has not typically conducted

many domestic or domestic support operations.

(b) Two, when these types of operations have been conducted, the role of DOD

intelligence components has been limited due to its mission to conduct DOD “intelligence activities.”
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Supporting and Sustaining Activities

(4) Current DOD policy interpretation is that intelligence activities only include foreign

intelligence (FI) and CI. Normally, there is little need for FI or CI in a CS operation. However, when

FI or CI is needed for a domestic operation the intelligence oversight rules limit what can be collected.

DOD intelligence components are governed by various laws and policy documents. These authorities

establish the operational parameters and restrictions under which DOD intelligence components may

collect, produce, and disseminate FI and CI. Implicit in this authorization, by the definition of FI and CI,

is a requirement that such intelligence relate to the activities of international terrorists or, foreign powers,

organizations, persons, and their agents. Moreover, to the extent that DOD intelligence components are

authorized to collect FI or CI within the United States, they may do so only in coordination with the FBI,

which has primary responsibility for intelligence collection within the United States. When DOD intelligence

components are conducting FI or CI, the intelligence oversight rules apply. These rules govern the

collection, retention, and dissemination of information concerning US persons. Special emphasis is

given to the protection of the constitutional rights and privacy of US persons so the intelligence oversight

rules generally prohibit the acquisition of information concerning the domestic activities of any US person.

(5) In the absence of any foreign nexus, DOD intelligence components generally perform

non-intelligence activities. A non-intelligence activity would be any activity that is conducted by or with

a DOD intelligence component asset or capability, but which does not involve FI or CI. For example,

the collection, retention, production, and dissemination of maps, terrain analysis, and damage assessments

for a CS mission. When a DOD intelligence component asset or capability is needed for a nonintelligence activity, specific authorization from SecDef is required for both the mission and use of the

DOD intelligence component capability or asset. The intelligence oversight rules do not apply to nonintelligence activities so the SecDef authorization must be sure to include any restrictions placed upon the

assets or capabilities used in the domestic or domestic support operation.

(6) Whether DOD intelligence components are conducting an intelligence activity or a nonintelligence activity for domestic operations or domestic support operations, certain rules universally

apply to data and imagery collected from overhead and airborne sensors. Geospatial data, commercial

imagery, and data or domestic imagery collected and processed by the NGA is subject to specific

procedures covering the request for geospatial data or imagery and its use. Judge advocates should

ensure that injuries are in compliance with NGA policy on requests for geospatial data or imagery and its

authorized use. Additionally, DODD 5210.52, Security Classification of Airborne Sensor Imagery

and Imaging Systems, and Defense Intelligence Agency Regulation50-30, Security Classification of

Airborne Sensor Imagery, provide specific guidance on mandatory security classification review of all

data collected by airborne sensor platforms to determine whether it can be disseminated.

(7) When determining what types of authorized use of DOD intelligence component

capabilities, assets, and the products derived from the data collected are required for a CS mission,

planners need to also understand the various intelligence collection platforms, their sensors, and how

they operate. Issues to consider include: whether the sensor is fixed or moveable, whether the platform

with the sensor can have its course altered during a mission, how is the data collected, transmitted and

processed, and the specific purpose of its mission. For example, an unmanned aircraft system (UAS)

may transmit data by live feed only to a line-of-sight receiver, or by satellite to a remote location.

Evidence of a criminal act “incidentally” collected during an authorized mission using DOD intelligence

component capabilities can be forwarded to the appropriate LEA; however, altering the course of an
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airborne sensor (such as a UAS) from an approved collection track to loiter over suspected criminal

activities would no longer be incidental collection, and could result in a PCA violation unless specifically

approved in advance. Certain data contains classified metadata which may need to be stripped at a

remote site before it can be disseminated in an unclassified manner. A CS operation using DOD

intelligence component capabilities which includes support to LEAs will probably require a separate

mission authority approval by SecDef and will need to consider whether the data is to be exclusively

transmitted to the LEA, and where the LEA agents are located to control or direct use of the assets.

Whether the collection platform and data transmission is wholly owned, operated, and received by a

DOD intelligence component, a DOD non-intelligence component, or a combination of both will require

careful consideration by judge advocates of the applicable rules and operational parameters and restrictions

applicable for the mission.

For further information, see DODD 5525.5, DOD Cooperation with Civilian Law Enforcement

Officials, for more information.

b. Information Handling and the Role of DOD Non-Intelligence Components

(1) DOD non-intelligence components also have restrictions relating to the acquisition of

information concerning the activities of persons and organizations not affiliated with DOD. This type of

information is often needed when conducting HD, especially CS. Within DOD, MCIOs have primary

responsibility for gathering and disseminating information about the domestic activities of US persons

that threaten DOD personnel or property. DOD components, other than the intelligence components,

may acquire information concerning the activities of persons and organizations not affiliated with the

DOD only in the limited circumstances authorized by DODD 5200.27, Acquisition of Information

Concerning Persons and Organizations Not Affiliated with the Department of Defense. DODD

5200.27 provides limitations on the types of information that may be collected, processed, stored, and

disseminated about the activities of persons and organizations not affiliated with DOD. Those

circumstances include the acquisition of information essential to accomplish the following DOD missions:

protection of DOD functions and property, personnel security, and operations related to civil disturbances.

The directive is very explicit and should be referred to when determining authority for this type of

information. Questions on whether DOD intelligence capabilities may be utilized in a CS operation

should be referred to the command judge advocate if the authorities, permissible operational parameters,

and or limitations are unclear. The command judge advocate will provide the commander legal advice

regarding intelligence law and oversight matters; advising on the permissible acquisition and dissemination

of information on non-DOD affiliated persons and organizations; and recommending legally acceptable

courses of action.

(2) CS activities may require the disclosing of normally classified information to civilian

personnel and/or offices. Disclosure should be made only when it is consistent with US policy and

national security objectives concerning the recipient. Disclosure of classified military intelligence will be

made only when all of the applicable criteria are met. Since CS operations will require release of the

product, intelligence collectors should write the products for release to prevent delays in requesting

release or sanitization of a product. Restrictive caveats must be used only when absolutely necessary.

Sanitization is a procedure to provide essential elements of information while concealing sensitive

information. The lead combatant command intelligence directorate is authorized to sanitize intelligence
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Supporting and Sustaining Activities

in an immediate crisis situation. However, if at all possible, the appropriate national agency representative

should be contacted for sanitization of their products.

6. International Support

“In response to the Hurricane Katrina disaster, 122 countries and international

organizations made pledges of money, personnel, equipment, and disaster relief

supplies that totaled in excess of $668 million. With its tremendous resources

and capabilities, the US is traditionally among the first countries to respond to

international disasters. Following Hurricane Katrina, the US Government found

itself in the unfamiliar position of being offered aid from other nations; however,

American officials were preoccupied with managing the response to the disaster

and did not have a clear process for receiving and distributing foreign assistance.”

Hurricane Katrina, National Response to Catastrophic Events:

Applied Lessons for Consequence Management

Joint Center for Operational Analysis

United States Joint Forces Command

21 August 2006

a. For domestic disasters with a high degree of international interest, the US may, for diplomatic or

national security reasons, accept some international assistance from select countries, even if that assistance

is not requested or required for operational purposes. Working together, the primary agencies (FEMA,

DOS, Office of Foreign Disaster Assistance, and the US Agency for International Development) will

endeavor to meet such foreign policy objectives while minimizing the obstruction to relief operations.

b. Due to the wide range of resources available within the US, the USG is not likely to

require routine international assistance for domestic disasters. Exceptions may include particularly

large or simultaneous disasters, for which very specific commodities or technical assistance might be

requested, and for which a foreign partner can provide needed goods in a timely manner.

c. Outside the international assistance system, DOD has the authority to accept foreign military

assistance in support of its operations. For example, DOD may accept an offer of foreign military

medical personnel to backfill at a US military hospital for US military medical personnel who are deployed

to a domestic disaster. DOD uses the international assistance system for any international assistance it

requests or receives in conjunction with FEMA mission assigned activities.

7. Personnel

a. The objective of personnel operations is to maintain employed units at authorized strength and

to be ready in all respects to carry out the concept of operations. The core functional responsibilities

of a manpower and personnel directorate of a joint staff (J-1) are accomplished during CS

operations; with some exceptions such as morale, welfare, and recreation; establishing a rest and

recuperation program; coordinating military postal operations; and monitoring joint personnel training

and tracking activities.
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b. Personnel Support. The authorities and responsibilities for personnel support to CS operations

are largely the same as those for any other DOD mission set. Some notable exceptions, however, apply

to CS operations within the land, airspace, and territorial waters of the US due to the unique mission sets

assigned to USNORTHCOM.

c. Personnel Accountability. Personnel accountability is a command responsibility. Personnel

accountability, strength reporting, and manpower management are the focal points for a joint force J-1

during CS operations. CS operations pose specific challenges; one example being that units may deploy

from their home stations instead of a designated port of debarkation (POD). Service personnel elements

supporting home station deployments must ensure that all processing and reporting requirements are

met prior to unit deployment. In specific circumstances, such as operations in a WMD environment, the

employing JTF may establish a joint reception center (JRC) to ensure arriving units are ready for

employment, but this would be the exception.

(1) Personnel Accountability in Conjunction with Disasters. Attacks on the United States can

affect DOD personnel and their dependents. Service components account for and report the status of

all DOD-affiliated military and civilian personnel, and all family members immediately following a disaster

or attack. Additionally, Service components should be prepared to report the number of Service members,

DOD civilians, and their dependents requiring evacuation from an affected area. The Services will

provide the necessary level of personnel accountability support to the GCC to ensure the GCC’s human

resource visibility mission can be efficiently accomplished. See DODI 3001.02, Personnel Accountability

in Conjunction with Natural or Man-made Disasters and CJCS Manual (CJCSM) 3150.13, Joint

Reporting Structure – Personnel Manual for specific direction.

(2) Joint Personnel Status Report. The joint personnel status report (JPERSTAT) will be used

by units supporting USNORTHCOM CS operations to report the number of personnel operationally

employed in the GCC AOR. The JPERSTAT is the means by which the GCC reports to the CJCS the

number of personnel, by location, unit and Service, permanently assigned, attached, OPCON or ADCON

to the GCC. Afloat and ashore personnel will be counted. In addition, US DOD civilians and DOD

contractors supporting the joint task force or JTF component commands within the joint operational

area will be counted. See CJCSM 3150.13, Joint Reporting Structure – Personnel Manual for detailed

direction.

d.Manning and Augmentation. USNORTHCOM does not maintain standing CS forces. These

forces are task organized when needed, causing a continuing requirement for individual augmentation

(see CJCSI 1301.01C) to add specific Service representation or skill sets to an existing organization.

This particularly applies to AFNORTH and ARNORTH in cases where they are required to form JTFs.

These component commands must prepare joint manning documents listing the specific Service expertise

required to meet their mission requirements.

e. Family Assistance. In CS operations, family assistance centers and/or emergency family assistance

centers may be established by the Services to support DOD families affected by man-made or natural

disasters. USNORTHCOM may direct the establishment of an emergency family assistance center to

coordinate family support between the Services and installations in the affected area.
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Supporting and Sustaining Activities

For detailed guidance on Personnel Support, see JP 1-0, Personnel Support to Joint Operations.

8. Financial Management

Financial management (FM) units provide the same capabilities during CS operations as they do

for other operations. FM capabilities provide the following support: procurement, pay, disbursing,

accounting, and banking. Costs incurred during CS operations are incremental and are reimbursable

IAW Title 31 USC, Section 1535 (commonly called the Economy Act) and Stafford Act, unless otherwise

directed by the President. FM units must have processes in place to capture these incremental costs to

facilitate reimbursement.

9. Safety Support

Safety planning and operational risk management is a key factor in the prevention of accidental loss

of life and resources used to carry out joint CS operations. Safety plans should be fully coordinated with

other agencies and promote mission safety. Safety reporting will be through the owning respective

service.

10. Legal

CS operations involve numerous statutory, regulatory, and policy considerations. The commander

and the staff judge advocate must be knowledgeable concerning the authority and responsibility of

DOD as well as that of the various other federal agencies. Inherent in this event are the relationships

between federal, state, tribal, and local authorities, as well as jurisdictional principles, security requirements,

environmental requirements, and claims administration. The occurrence of a CS incident presents

complex legal problems. Legal issues range from complex questions regarding jurisdiction and authority

to exclude the general public from specific areas, to payment of simple personal property claims. The

response force organization should include a legal element to advise and assist in resolving these and

other local legal issues. Specific tasks include:

a. Advising the commander and functional staff elements on any matters related to the CS incident.

b. Organizing and supervising the legal functional element at the site of the incident. This may

include establishing and operating a claims processing facility.

c. Coordinating technical legal matters with a higher authority, when required.

d. Coordinating legal issues with the principal legal advisors or other participating departments

and agencies, as required.

e. Providing legal advice and assistance to other federal officials upon request, as permitted by the

appropriate interagency service agreements.

f. Reviewing proposed public statements for legal sufficiency and implications.
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Intentionally Blank
APPENDIX A

REIMBURSEMENT FOR CIVIL SUPPORT OPERATIONS

A-1

1. General

a. Authorities and funding are main issues that impact DOD’s ability to respond to and

provide CS. All CS is provided on a reimbursable basis unless otherwise directed by the President

or reimbursement is waived by the SecDef. Cost reimbursement for CS is usually IAW Title 31

USC, Section 1535 (commonly called the Economy Act), which mandates cost reimbursement

by the federal agency requesting support. The Stafford Act sets the guidelines for reimbursements

to federal agencies and states from federal funds set aside to support missions in response to a

Presidential declaration.

See JP 1-06, Financial Management Support in Joint Operations, for more information.

b. DOD components are not funded to train, equip, and exercise specifically for CS operations,

and therefore, ordinarily provide CS on a cost reimbursable basis.

c. DOD components shall comply with legal and accounting requirements for the loan, grant, or

consumption of DOD resources for CS, as necessary, to ensure reimbursement of costs to the DOD

components under the Stafford Act, as amended; the Defense Emergency Response Fund established

by Public Law No. 101-165; or other applicable authority.

(1) Reimbursable Activities. Commanders use automatic reimbursements to augment

available funds using a special accounting program code. Incremental costs that directly result

from disaster relief are considered eligible for reimbursement.

(a) Pay of personnel hired specifically for disaster relief.

(b) Overtime.

(c) Travel and per diem.

(d) Cost of consumables requisitioned for issue to support disaster operations.

(e) Transportation of personnel, supplies, and equipment.

(f) Cost to pack and crate supplies and equipment.

(g) Cost of petroleum, oils, and lubricants, to include aviation fuel.

(h) Cost of supplies and equipment lost, destroyed, or damaged as a result of CS

operations, (except aircraft, motor vehicles, and water craft).
A-2

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JP 3-28

(i) Cost of aircraft flight hours.

(j) Cost of port (air, ocean, inland-waterway) loading, off-loading, and handling.

(k) Cost to repair or recondition nonconsumable items returned. Allocate the

percentage of repair costs attributable to the support provided.

(l) Replacement costs of supplies and equipment furnished and not returned.

(m) Cost of parts used to repair end-items used in disaster relief (excluding depot

or field maintenance on a time compliance basis).

(2) Nonreimbursable Activities (except under the authorities of the Economy Act).

The following items are not considered reimbursable expenses in the context of providing CS:

(a) Regular pay and allowances of military and civilian personnel.

(b) Charges for use of military vehicles and watercraft.

(c) Aircraft, vehicles, or watercraft damaged, lost, destroyed, or abandoned.

(d) Administrative overhead.

(e) Annual and sick leave, retirement, and other benefits.

(f) Cost of telephone, telegram, or other transmissions used to requisition items

in a disaster area to replenish depot stocks.

d. DOD components shall not procure or maintain any supplies, materiel, or equipment

exclusively for providing CS, unless otherwise directed by the SecDef.

e. DOD components shall not perform any inherently governmental function of civil

government unless directed by the President. Any commander who is directed to perform such

functions shall facilitate the reestablishment of civil responsibility at the earliest time possible.

2. Reimbursement Process

All DOD support is provided on a reimbursable basis, unless otherwise directed by the

President or reimbursement is waived by the SecDef. In most cases, state, local, and federal

agencies provide reimbursement for assistance provided by DOD. The reimbursement process

requires the DOD components to capture and report total and incremental costs IAW applicable

DOD financial management regulations. Supported agencies should also maintain records of

support received from DOD. To distinguish these costs from those related to training or normal

operating expenses, which are not reimbursed, resource managers must maintain accountability

throughout an operation for equipment and material costs associated with operational support.
A-3

Reimbursement for Civil Support Operations

Organizational record keeping needed to support cost-capturing must begin at the start of the operation

and at the lowest functional level.

Additional guidance can be found in DOD 7000.14-R, Department of Defense Financial Management

Regulation.

3. Legal Considerations

Some statutes permit federal agencies to seek waiver of reimbursement. For example,

federal LEAs may not be required to reimburse DOD for some types of support provided in the

normal course of military training or operations. If such support results in a benefit to DOD that

is substantially equivalent to that which would otherwise result from military training (Title 10

USC, Section 377), federal LEAs may not be required to reimburse DOD. The SecDef makes

this determination.

a. The Economy Act. Title 31 USC, Section 1535, the Economy Act, permits federal

agencies to provide goods and services to other federal agencies on a reimbursable basis.

b. The Stafford Act. While the Stafford Act does not require reimbursement, DOD is

usually reimbursed by FEMA for the incremental costs of providing support. Approval authority

and reporting requirements vary, depending upon the duration and type of support requested.

The President may direct any agency of the federal government to undertake missions and tasks

on either a reimbursable or nonreimbursable basis.

c. DOD Guidelines. DOD 7000.14-R, Department of Defense Financial Management

Regulation, and the USNORTHCOM CONPLAN 3501, Defense Support of Civil Authorities,

and CONPLAN 3502, Civil Disturbance Operations, require operating agencies and supported

CCDRs to recover all costs for civil disturbance operations. The operating agency and supported

CCDR are responsible for collecting costs for civil disturbance operations of all Service components

and DOD agencies, preparing cost reports for the executive agency, consolidating billings, forwarding

bills to DOJ, and distributing reimbursements to Service components and DOD agencies.

4. Service-Specific Considerations

Service-specific regulations provide financial management guidance governing funding,

reimbursement procedures, cost reports, travel entitlements, and finance pay support for military

personnel participating in domestic support operations.

a. Reimbursement procedures must conform to the requirements of the legal authority

relied on for provision of support.

b. Installations, agencies, and departments providing support must maintain records, receipts,

and documents to support claims, purchases, reimbursements, and disbursements.
A-4

Appendix A

JP 3-28

c. Payment of military and civilian personnel remains a Defense Finance and Accounting Service

(DFAS) responsibility.

d. Installations should establish separate accounting process codes to record the cost of the

operation. Installations use project codes, management decision packages, and functional cost accounts

furnished by DFAS-Indianapolis to record the costs of the operation.

e. Planning and warning orders do not automatically authorize fund expenditures for CS

operations.

5. Disaster Relief Costs

Disaster relief participation is an unprogrammed requirement for the Services for which

funds have not been budgeted. Service component commands may be required to initially fund

the cost of CS operations. Such operations are undertaken with the understanding that additional

operating expenses may be reimbursed by the requesting agencies. Costs should be recorded

using unique accounting codes IAW Service regulations and guidance.

6. Financial Management - Support

Military financial management units provide finance and resource management support

for troops supporting CS. Financial management elements of one Service may provide support

to other Services and for the entire CS operation, as directed.

a. Contracts. Paying for contracts and other local procurement is a critical function.

Financial management personnel should deploy early enough to support logistic contracting

elements. This support includes providing funds to paying agents.

b. Individual Support. Financial management elements may provide individual support,

to include check cashing, casual pay, inquiries, and travel payments.
APPENDIX B

STANDING RULES FOR THE USE OF FORCE FOR US FORCES

B-1

1. Purpose

Although projecting power overseas has been the usual strategy for ensuring national security,

the evolution of new threats against the nation has caused DOD to reshape its approach to this

important task. In this era of potential domestic terrorism and natural disasters, US military

forces may be required to assist civil authorities and to use force in the very heart of the nation.

The participation of the military in such scenarios is fraught with legal and political pitfalls that

warrant clear and specific guidance on the use of force. Third parties may seek to exacerbate a

situation for their own purposes by provoking an excessive use of force. The purpose of this

Appendix is to publish fundamental policies and procedures governing the RUF by DOD forces

during domestic CS missions. These RUF do not apply to NG forces while in state active duty

or Title 32 USC status.

2. Policy

a. CJCSI 3121.01B, Standing Rules of Engagement/Standing Rules for the Use of Force

for US Forces, establishes fundamental policies and procedures governing the actions to be

taken by US commanders and their forces during all DOD CS and routine military department

functions occurring within the US territory or US territorial seas. SRUF also apply to land HD

missions occurring within US territory.

b. The SecDef approves and the CJCS promulgates standing rules of engagement (SROE) and

SRUF for US forces. The Joint Staff, Operations Directorate is responsible for the maintenance of the

SROE/SRUF in coordination with OSD. Commanders at all levels are responsible for establishing

rules of engagement (ROE)/RUF for mission accomplishment that comply with the ROE/RUF of senior

commanders, the law of armed conflict, applicable international and domestic law and the CJCS SROE/

SRUF. It is critical that commanders consult with their command judge advocates when establishing

ROE/RUF.

c. Unless otherwise directed by a unit commander (IAW CJCSI 3121.01B, Standing Rules

of Engagement/Standing Rules for the Use of Force for US Forces), military personnel have the

right under law to use force that is reasonably necessary under the circumstances to defend

themselves against violent, dangerous or life-threatening personal attack. In addition, military

personnel are authorized to use force to discharge certain duties.

d. Nothing in this Appendix alters or limits military commanders’ inherent right and

obligation to exercise unit self-defense in response to a hostile act or demonstrated hostile intent.

Unit self-defense includes the defense of other DOD forces in the vicinity.

e. Commanders at all levels are responsible for training their personnel to understand and

properly utilize the SRUF. In this regard, it is critical that legal advisers be available to assist in

this training and to advise commanders at all levels of the applicable rules.
B-2

Appendix B

JP 3-28

f. When DOD forces are detailed to other federal agencies, mission-specific RUF will be used.

These RUF must be approved by the SecDef and the federal agency concerned.

g. DOD units under USCG control and conducting law enforcement support operations or maritime

homeland security support operations will follow the Coast Guard Use of Force Policy, Commandant,

United States Coast Guard Instruction 16247.1, US Coast Guard Maritime Law Enforcement

Manual for employing warning shots and disabling fire, and follow the SROE/SRUF and/or mission

specific use of force rules for all other purpose. However, DOD forces under USCG control retain the

right of self-defense.

h. When DOD forces under DOD control operate in coordination with other federal agencies,

the applicable RUF will be coordinated with the on-scene federal agency personnel.

i. CCDRs may augment these SRUF as necessary by submitting requests for missionspecific RUF to the CJCS, for approval by the SecDef (IAW CJCSI 3121.01B, Standing Rules

of Engagement/Standing Rules for the Use of Force for US Forces).

“It is an unbending rule of law, that the exercise of military power, where the rights

of the citizen are concerned, shall never be pushed beyond what the exigency

requires.”

Associate Justice of the Supreme Court Noah Swayne,

Raymond v. Thomas, 91 US 712, 716 (1875)

3. Procedures

Normally, force is to be used only as a last resort, and should be the minimum necessary.

The use of force must be reasonable in intensity, duration, and magnitude based on the totality of

the circumstances to counter the threat. If force is required, nonlethalforce is authorized and may be

used to control a situation and accomplish the mission, or to provide self-defense of DOD forces,

defense of non-DOD persons in the vicinity if directly related to the assigned mission, or in defense of the

protected property, when doing so is reasonable under the circumstances. Lethal force is authorized

only when all lesser means have failed or cannot reasonably be employed and the circumstances otherwise

justify the use of lethal force.

a. General direction regarding the appropriate use of force comes from a conceptual framework

known as the “Use of Force Continuum.” The Use of Force Continuum is generally seamless and does

not require movement from one level tothe next in sequential order. The Use of Force Continuum can

be divided into five broad categories related to the goals of the military units providing support and

behavior of subject audience. They are: Intimidate/Control, Deny/Obstruct/Impede, Disorient/Distract,

Disable/Incapacitate, and Cause Death/Serious Injury (see Figure B-1).

(1) Intimidate/Control. In most cases, the subject audience will comply with the

verbal instructions or commands. When time and circumstances permit, the individual(s) or
B-3

Standing Rules for the Use of Force for US Forces

group should be warned and given the opportunity to withdraw with the goal of preventing the escalation

of force. Verbal commands used with firmness and tact should be sufficient to control the situation.

Additionally, the military unit’s resolve can be implied by mere presence, donning protective gear, or

forming into riot control formations.

(2) Deny/Obstruct/Impede. At this level, the subject audience exhibits usually simple

resistance or refusal to obey instructions and there is no immediate danger of a physical

confrontation. The use of tactics, techniques and procedures to deny the subject audience presence

in or access to an area or to obstruct or impede their movement is authorized. Examples of the

methods short of physical contact include the use of concertina, caltrops, or other means to

barricade or isolate an area.

(3) Disorient/Distract. At this level, actual physical resistance may be encountered.

Resistance is commonly manifested by continued refusal to comply with directions coupled

with threatening behavior, shouting and open defiance. The use of nonlethal weapons (NLWs) that

cause physical disorientation and distraction may be authorized by the appropriate approval authority.

Figure B-1. Continuum of Force Levels

CONTINUUM OF FORCE LEVELS

SUBJECT

BEHAVIOR

GOALS

Cooperative

Simpler

Resistance

Physical

Resistance

Nonlethal

Combative

Lethal

Combative

Intimidate,

Control

Deny, Obstruct,

Impede

Disorient,

Distract

Disable,

Incapacitate

Cause Death/

Serious Injury
B-4

Appendix B

JP 3-28

(4) Disable/Incapacitate. This is the level at which military personnel are in imminent

danger of bodily injury. It is generally characterized by the subject audience using physical attacks or

other combative actions to prevent apprehension or otherwise frustrate military operations. The use of

Service-approved, unit-issued NLWs that cause physical discomfort, physical incapacitation or blunt

trauma are authorized. Detailed guidance for use of riot control agents by DOD personnel is governed

by CJCSI 3110.07C, Guidance Concerning the Chemical, Biological, Radiological, and Nuclear

Defense and Employment of Riot Control Agents and Herbicides (S). Although the use of NLWs

that cause physical discomfort may fall short of inflicting actual trauma, the employment of these weapons

requires nevertheless an assessment of reasonableness under the circumstances. NLWs that inflict blunt

trauma constitute the most serious of the nonlethal options within the Use of Force Continuum. Care

should be exercised in employing such options as they may cause painful or debilitating injuries, and in

some rare cases, death.

(5) Cause Death/Serious Injury. In the final level of the Use of Force Continuum, the

subject audience behaves in a manner that is combative and poses an imminent threat of death or serious

bodily harm. In such cases, DOD forces may respond with lethal force. While lethal force is to be used

only when all lesser means have failed or cannot reasonably be employed, lethal force is authorized

under the following circumstances:

(a) Lethal force is authorized when DOD unit commanders reasonably believe

there is an imminent threat of death or serious bodily harm to their units and other DOD forces

in the vicinity.

(b) Lethal force is authorized in defense of non-DOD persons in the vicinity,

when directly related to the assigned mission.

(c) Lethal force is authorized when lethal force reasonably appears to be necessary

to prevent the actual theft or sabotage of assets vital to national security.

(d) Lethal force is authorized when lethal force reasonably appears to be necessary

to prevent the actual theft or sabotage of inherently dangerous property.

(e) Lethal force is authorized when lethal force reasonably appears to be necessary

to prevent the sabotage of national critical infrastructure.

b. Consequently, when directly related to the assigned mission, lethal force is authorized

under the following circumstances:

(1) Lethal force is authorized when lethal force reasonably appears to be necessary to

prevent the commission of a serious offense that involves imminent threat of death or serious

bodily harm (for example, setting fire to an inhabited dwelling or sniping), including the defense

of other persons, where lethal force is directed against the person threatening to commit the

offense. Examples include murder, armed robbery and aggravated assault.
B-5

Standing Rules for the Use of Force for US Forces

(2) Lethal force is authorized when lethal force reasonably appears to be necessary to prevent

the escape of a prisoner, provided there is probable cause to believe that such person(s) have committed

or attempted to commit a serious offense, that is, one that involves imminent threat of death or serious

bodily harm, and would pose an imminent threat of death or serious bodily harm to DOD forces or

others in the vicinity.

(3) Lethal force is authorized when lethal force reasonably appears necessary to arrest

or apprehend a person who, there is probable cause to believe, has committed a serious offense

(as defined in the preceding subparagraph).

c. When operating under these RUF, warning shots are not authorized within US territory

(including US territorial waters), except when in the appropriate exercise of force protection of

US Navy and Naval Service vessels during maritime operations as permitted by CJCSI 3121.01B,

Standing Rules of Engagement/Standing Rules for the Use of Force for US Forces.

d. Units with assigned weapons may deploy with weapons stored; however, weapons will

not be carried during CS operations unless authorized by the SecDef.
B-6

Appendix B

JP 3-28

Intentionally Blank
APPENDIX C

BASE SUPPORT INSTALLATION/JOINT RECEPTION, STAGING,

ONWARD MOVEMENT, AND INTEGRATION

C-1

BASE SUPPORT INSTALLATION

A base support installation (BSI) serves as the logistics hub to support

military forces conducting civil support operations. BSIs will generally have

the following capabilities:

(1) Close proximity to the incident site (less than 100 miles).

(2) Close proximity to a major airfield.

(3) Life support services to include billeting, food service, fuel,

contracting, medical support, and force protection.

(4) Open and covered areas for staging of supplies and equipment.

(5) Adequate transportation network to and from incident site.

(6) Communications infrastructure sufficient to meet the surge of forces

arriving in the area.

A BSI’s primary mission is to provide support to Department of Defense

forces responding to an incident.

1. General

During CS operations, the supported CCDR will designate BSIs in coordination with the

owning Service and approved by the SecDef (or as delegated). A BSI provides common-user

logistic support (fuel, food, general supplies, etc.) and assists a JTF with JRSOI of responding

DOD forces.

2. Concept of Operations

Support concepts are based on the proximity of the designated BSI and its capabilities

which are:

a. Major Installation. If a designated BSI is a major installation within a reasonable

travel time from the incident area, then that installation will augment TF common user support

to all responding forces to the greatest extent possible. This will enable the responding TF to

focus on the CS mission. The installation staff should be able to assume responsibility for the

majority of the joint reception and staging mission.
C-2

Appendix C

JP 3-28

b. Austere Installation. Depending on the location of the catastrophic incident, the BSI may be

required to be established in an area that is not in close proximity to a robust DOD installation. In these

instances, the CJTF will complete an estimate of the situation and request either contract support or

submit requests for forces in order to mitigate logistic capability shortfalls due to limited personnel,

equipment, facilities, or interrupted or extended lines of communications between the BSI and those

DOD elements operating at the incident site.

3. Base Support Installation Considerations

Commanders and their staffs conduct mission analysis to prepare to meet logistic

requirements and to coordinate the potential use of a military installation for base support of

DOD forces during CS operations. BSI planning considerations should take into account, at a

minimum, the following areas related to the key functions of logistics:

a. A concise concept of purpose and description of the functions the BSI will support.

b. Forces required to support the operation and phasing for induction of logistic elements.

c. A JFO in the affected area for CBRNE.

d. FEMA mobilization location.

e. Length of time the BSI will provide support.

f. Transportation suitability (reception and staging capabilities, condition, maximum on

ground, material handling equipment, medical evacuation capability, etc.)

g. Adequate supply, maintenance, transportation, civil engineering, medical, and other

service support at the BSI.

4. Joint Reception, Staging, Onward Movement, and Integration

JOINT RECEPTION, STAGING, ONWARD

MOVEMENT, AND INTEGRATION

Joint reception, staging, onward movement, and integration (JRSOI) is the

essential process that transitions deploying forces, consisting of personnel,

equipment, and materiel arriving into the operational area, into cohesive

forces capable of meeting the commander’s operational requirements. For

civil support missions, the joint task force providing command and control

of the deploying force conducts JRSOI, supported by the designated base

support installation.

a. General. JRSOI for CS operations is characterized by three overarching principles: unity of

command, synchronization, and balance of unit flow into the operational area in support of CS. While

sharing many similarities of conventional JRSOI operations as described in JP 3-35, Deployment and
C-3

Base Support Installation/Joint Reception, Staging, Onward Movement, and Integration

Redeployment Operations, the CJTF must plan for some unique considerations when responding to

CS missions.

(1) The JTF headquarters will most likely have to perform JRSOI functions primarily

with internal resources and assistance from the designated BSI.

(2) Responding DOD units may not necessarily flow into the operational area in a

doctrinally prescribed fashion through designated PODs when responding to catastrophic events.

Units may have to stage and move directly from their home station installations to the operational

area. Multiple lines of communications may be used by units responding to CS operations.

(3) Deploying forces will undergo some form of reception, staging, onward movement,

and integration. The JTF must have a well-planned, and carefully managed process that has a

robust command, control, and communications infrastructure that is able to effectively manage

the dynamic flow of prepared and ready forces into the operational area.

b. Reception operations include all those functions required to receive and clear unit personnel,

equipment, and materiel through the POD. During reception operations, it is essential that the JTF

control the deployment flow. Component support plans will address how personnel will report to the

CJTF regardless of the POD that units use for reception and staging.

c. Staging operations includes the assembling, temporary holding, and organizing of arriving

personnel, equipment, and materiel in preparation for onward movement. Staging areas provide the

necessary facilities, sustainment, and other required support to enable units to become mission capable

prior to onward movement into the JOA. The personnel, equipment, and materiel to be employed for

CS operations within the United States may stage within the confines of their respective home installation.

Reliable communications and well-understood reporting requirements are essential for the JTF to effectively

manage the building of capability for the CJTF.

d. Onward movement operations include movement of personnel and accompanying

material from reception facilities and staging areas to a designated unit forward operating base

(FOB) within the JOA. If units and forces employed in CS missions within the United States are

geographically close to the JOA, the unit FOB may be located at the unit’s home installation.

Depending on the location of the BSI in relation to the incident site, a FOB could also be located

at a designated BSI.

e. Integration operations encompass the synchronized hand off of units to an operational

commander prior to mission execution. CS operations within the United States often combine

Title 10 USC, Title 32 USC, and state active duty forces. The CJTF’s C2 as well as communication

and coordination possibilities are extensive and special attention to integration should be emphasized.
C-4

Appendix C

JP 3-28

Intentionally Blank
APPENDIX D

OVERVIEW OF THE NATIONAL RESPONSE PLAN AND

NATIONAL INCIDENT MANAGEMENT SYSTEM

D-1

1. General

a. This appendix provides information about the NRP and the NIMS with a focus on how

NIMS provides for multiagency coordination through the JFO. It identifies the key roles,

authorities, and structure with explanation about how the JFC integrates into the federal

coordinated response. It is important to note that the NRP does not cover all CS operations, e.g.,

it does not cover periodic planned support or CD, but parts of it can be used for other nonStafford incidents.

b. The NRP and NIMS are companion documents designed to improve the nation’s incident

management capabilities and overall efficiency. The NRP represents a concerted national effort to

prevent terrorist attacks within the United States; reduce America’s vulnerability to terrorism, major

disasters, and other emergencies; and minimize the damage and recover from attacks, major disasters,

and other emergencies that occur. The NIMS provides a template for incident management regardless

of size, scope, or cause. Use of this template enables federal, state, local, and tribal governments and

private-sector and NGOs to work together effectively and efficiently to prevent, prepare for, respond

to, and recover from actual or potential domestic incidents regardless of cause, size, or complexity.

Together, the NRP and the NIMS integrate the capabilities and resources of various governmental

jurisdictions, incident management and emergency response disciplines, NGOs, and the private sector

into a cohesive, coordinated, and seamless national framework for domestic incident management.

c. The JFO is a temporary federal facility established locally to provide a central point for

federal, state, local, and tribal executives with responsibility for incident oversight, direction,

and/or assistance to effectively coordinate protection, prevention, preparedness, response, and

recovery actions. The JFO utilizes the scalable organizational structure of the NIMS in the

context of both pre-incident and post-incident management activities. The JFO does not manage

on-scene operations. Instead, the JFO focuses on providing support to on-scene efforts and

conducting broader support operations that may extend beyond the incident site.

2. National Response Plan Basics

a. As required by HSPD-5, the NRP establishes a single, comprehensive approach to

domestic incident management to prevent, prepare for, respond to, and recover from terrorist

attacks, major disasters, and other emergencies. The NRP is an all-hazards plan built on the

template of the NIMS. The NIMS provides a consistent doctrinal framework for incident

management at all jurisdictional levels regardless of the cause, size, or complexity of the incident.

b. The NRP, using the NIMS, provides the structure and mechanisms for national-level policy and

operational direction for domestic incident management. The NRP can be partially or fully implemented

in the context of a threat, anticipation of a significant event, or in response to an incident requiring a

coordinated federal response. This includes events with potential national or long-term implications
D-2

Appendix D

JP 3-28

such as a public health emergency or a cyberspace incident. Selective implementation through the

activation of one or more of the NRP elements allows maximum flexibility to meet the unique operational

and information-sharing requirements of any situation and enables effective interaction among various

federal, state, local, tribal, private-sector, other civilian entities, and NGOs.

c. The NRP applies to all incidents requiring a coordinated federal response as part of an

appropriate combination of federal, state, local, tribal, private-sector, and nongovernmental entities.

The NRP is applicable to all federal departments and agencies that have primary jurisdiction for

or participate in operations requiring a coordinated federal response. The NRP also applies to

the ARC, which functions as an ESF primary organization in coordinating the use of mass care

resources. For incidents requiring a coordinated federal response, but of lesser severity than an

incident of national significance, the NRP includes a comprehensive network of incident annexes

and supplemental federal contingency plans that may be implemented by the departments and

agencies with established authorities in coordination with the NRP framework.

d. The NRP is always in effect; however, the implementation of NRP coordination

mechanisms is flexible and scalable. Actions range in scope from ongoing situational reporting

and analysis, through the implementation of NRP incident annexes and other supplemental

federal contingency plans, to full implementation of all relevant NRP coordination mechanisms

outlined in the NRP base plan.

3. Overview of Disaster Response and Incident Management

a. This overview illustrates actions federal agencies will likely take to assist state and local

governments that are overwhelmed by a major disaster or emergency. Figure D-1 provides a

graphic display of a federal response under the Stafford Act.

b. The DHS NOC continually monitors potential major disasters and emergencies. When

advance warning is possible, DHS may deploy and may request other federal agencies to deploy

LNOs and personnel to a state EOC to assess the emerging situation. An RRCC may be activated,

fully or partially. Facilities, such as mobilization centers, may be established to accommodate

personnel, equipment, and supplies.

c. Immediately after an incident, local jurisdictions respond using available resources and

notify state response elements. As information emerges, they also assess the situation and the

need for state assistance. The state reviews the situation, mobilizes state resources, and informs

the DHS/Emergency Preparedness and Response/FEMA regional office of actions taken.

d. The governor activates the state emergency operations plan, proclaims or declares a

“state of emergency,” and requests a state/DHS joint preliminary damage assessment (PDA) to

determine if sufficient damage has occurred to justify a request for a Presidential declaration of

a major disaster or emergency. Based upon the results of the PDA, the governor may request a

Presidential declaration, and define the kind of federal assistance needed. At this point, an initial assessment

is also conducted of losses avoided based on previous mitigation efforts.
D-3

Overview of the National Response Plan and National Incident Management System

e. After the major disaster or emergency declaration, an RRCC, staffed by regional personnel,

coordinates initial regional and field activities.

f. Depending on the scope and impact of the event, the NOC, supported by ESF representatives

and DHS/FEMA support staff, carries out initial activation and mission assignment operations and

supports the RRCC.

Figure D-1. Federal Response

FEDERAL RESPONSE

NRP

Resources

National

Operations

Center

FEDERAL

ASSISTANCE

Provides Coordination

of Federal Resources

Joint

Field Office

Deploy as

Necessary

Emergency

Response Team

or Other Elements

Implement National

Response

Plan

DHS

and Others

Declares Major

Disaster or

Emergency

May Deploy In

Advance of

Imminent

Danger

Monitors Threats

and Potential

Incidents

President

Frames Operational

Courses of

Action

Reviews Situation,

Assesses Need for Disaster

Declaration and

Activation of NRP

Elements

Incident

Advisory Council

Secretary

DHS

Evaluates Situation

Alerts

Requests

Aid from

Reports

to

Recommends

Activates

Activates

Activates

Delivers

May

Convene

Preliminary

Damage

Assessment

and

Requests

Presidential

Declaration

National

Operations Center

INCIDENT

OCCURS

Arrive First at

Scene Activates Local

EOC

Activates State

EOC

Local First

Responders Mayor/County

Executive

Governor

DHS

EOC

NRP

Department of Homeland Security

Emergency Operations Center

National Response Plan
D-4

Appendix D

JP 3-28

g. A FCO, appointed by the Secretary of Homeland Security on behalf of the President,

coordinates federal support activities. The FCO works with the SCO to identify requirements.

A PFO also may be designated as the Secretary’s representative to coordinate overall federal

interagency incident management efforts. When required, a JFO will be established.

h. ESF primary agencies assess the situation and identify requirements and help states respond

effectively. Federal agencies provide resources under DHS/FEMA mission assignment or their own

authority.

i. The incident advisory council convenes when needed to provide strategic-level

coordination and frame courses of action regarding various operational and policy issues. The

NOC supports the incident advisory council and coordinates with the JFO.

j. As immediate response priorities are met, recovery activities begin. Federal and state

agencies assisting with recovery and mitigation activities convene to discuss state needs.

4. National Response Plan Roles and Responsibilities

a. A basic premise of the NRP is that incidents are generally handled at the lowest

jurisdictional level possible. In the vast majority of incidents, state and local resources and

interstate mutual aid will provide the first line of emergency response and incident management

support. The NRP provides the framework for federal interaction with state, local, tribal, privatesector and nongovernmental entities in the context of domestic incident management to ensure

timely and effective federal support.

b. Just as a lead or primary agency is designated at the federal level; a lead agency is

usually designated at the state level.

(1) Typically, states have established state emergency management agencies as

executive agents to manage incident response.

(2) State LEAs can include investigative bureau personnel and state patrol officers (which in

some states are distinctly different from state police officers).

(3) The NG may be the first military force to respond to support first responders when

organic capabilities are exhausted, and the incident response is elevated to the state level. In this

capacity, the NG will be in state active duty or Title 32 USC status under the governor’s command. As

an integrated and supporting organization of a state’s emergency management response, the NG supports

the incident commander in accordance with the incident command system.

(4) The EMAC is a Congressionally ratified interstate agreement among all 50 states, the

District of Columbia, Puerto Rico, and the Virgin Islands and is administered by the National Emergency

Management Association to provide assistance from one state to another. Generally, when a state

requires assistance beyond its organic resources, it generates an EMAC RFA that is sent out to the other
D-5

Overview of the National Response Plan and National Incident Management System

member states. Under EMAC, the requesting state reimburses the supporting state(s) for all costs

associated with the assistance. EMAC support depends entirely on voluntary assistance. There is no

provision within EMAC whereby one state can be compelled to support another state with its organic

capabilities and resources. EMACs provide the framework for states to rapidly assist each other with

resources during emergencies, to include NG personnel in state active duty or Title 32 USC status.

c. The state governor has the final commitment authority over state capabilities in any

disaster response effort short of a federal response. Governors have the unique authority to issue

a state emergency declaration, mobilize the state NG, and redirect state resources to emergency

response. A governor can request federal assistance from the President when state capabilities

prove insufficient. This request brings the resources of the Federal government to bear on the

disaster and can involve DOD.

d. The private sector’s role is to be a key partner in domestic incident management,

particularly in the area of critical infrastructure protection and restoration. Private-sector entities

are also called upon to contribute necessary items and services to the impacted area. These

sources are important to aid in the lifesaving and recovery efforts. DHS and other federal

departments and agencies coordinate with the private sector to effectively share information,

formulate courses of action, and incorporate available resources to prevent, prepare for, respond

to, and recover from incidents of various types. For coordination with the owners and operators

of the nation’s critical infrastructure, DHS and federal agencies utilize the mechanisms established

under the National Infrastructure Protection Plan, including the critical infrastructure protection

advisory committee. Further, the Secretary of Homeland Security utilizes private-sector advisory

groups with broad representation to provide advice on incident management and emergency

response issues impacting their stakeholders. The NRP includes an annex on private-sector

coordination.

e. Federal government roles and responsibilities derive from HSPD-5, which assigns specific

responsibilities to DHS and delineates the roles and responsibilities of certain other federal

departments.

(1) The President is the chief executive authority regarding incidents. Under the

authority of the Stafford Act, he declares incidents to be disasters or emergencies. He can

delegate authority to others to act as executive agents in matters of incident response.

(2) Pursuant to HSPD-5, the Secretary of Homeland Security is responsible for

coordinating federal resources within the US to prepare for, respond to, and recover from terrorist

attacks, major disasters, and other emergencies. HSPD-5 further designates the Secretary of

Homeland Security as the “principal federal official” for domestic incident management.

(3) The Attorney General has lead responsibility for criminal investigations of terrorist acts or

terrorist threats by individuals or groups inside the US, or directed at US citizens or institutions abroad.

Generally acting through the FBI, the Attorney General, in cooperation with other federal departments

and agencies engaged in activities to protect our national security, shall also coordinate the activities of
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the other members of the law enforcement community to detect, prevent, preempt, and disrupt terrorist

attacks against the US.

(4) DOD has significant resources that may be available to support the federal response

to terrorist attacks, major disasters or other emergencies. The SecDef authorizes CS operations

for domestic incidents as directed by the President or when consistent with military readiness

operations and appropriate under the circumstances and the law. The SecDef retains command

of military forces providing CS.

(5) DOS has international coordination responsibilities. The Secretary of State is

responsible for coordinating international prevention, preparedness, response, and recovery

activities relating to domestic incidents, and for the protection of US citizens and US interests

overseas.

5. National Response Plan Concept of Operation

a. The NRP, as the core plan for national incident management, also establishes nationallevel coordinating structures, processes, and protocols that will be incorporated into certain

existing federal interagency incident- or hazard-specific plans (such as the National Oil and

Hazardous Substances Pollution Contingency Plan) that are designed to implement the specific

statutory authorities and responsibilities of various departments and agencies in particular

contingency scenarios. These plans, which incorporate the coordinating structures and

mechanisms of the NRP, provide detailed protocols for responding to incidents of lesser severity

normally managed by federal agencies without the need for the Secretary of Homeland Security

to manage the federal response.

b. ESFs are the primary means through which the Federal government provides assistance

to state, local, and tribal governments or to federal departments and agencies conducting missions

of primary federal responsibility. ESFs are an effective mechanism to group capabilities and

resources into the functions that are most likely needed during actual or potential incidents

where coordinated federal response is required (e.g., transportation, firefighting, public health).

ESFs may be selectively activated for both Stafford Act and non-Stafford Act incidents by the

Secretary of Homeland Security. They may also be activated by the ESF coordinators. The ESF

structure provides a modular structure to identify the precise components that can best address

the requirements of the incident. For example, a large scale natural disaster or significant terrorist

incident may require the activation of all ESFs. A localized flood or tornado might only require

activation of a few ESFs. Figure D-2 provides each ESF’s scope of responsibility.

(1) The ESF structure provides coordination of federal interagency support of a federal

response to an incident. The ESF structure includes mechanisms used to provide federal support

to states and federal-to-federal support, both for declared disasters and emergencies under the

Stafford Act and for non-Stafford Act incidents. The ESF structure provides mechanisms for interagency

coordination during all phases of incident management. Some departments and agencies provide resources

for response, support, and program implementation during the early stage of an event, while others are

more prominent in the recovery phase. ESFs are activated based on the scope and magnitude of the
D-7

Overview of the National Response Plan and National Incident Management System

Figure D-2. Emergency Support Functions Descriptions

EMERGENCY SUPPORT FUNCTIONS DESCRIPTIONS

Emergency Support

Function Scope







Coordination with telecommunication industry

Restoration/repair of telecommunications infrastructure

Protection, restoration, and sustainment of national cyberspace

and information technology resources









Infrastructure protection and emergency repair

Infrastructure restoration

Engineering services, construction management

Critical infrastructure liaison





Firefighting activities on Federal lands

Resource support to rural and urban firefighting operations











Coordination of incident management efforts

Issuance of mission assignments

Resource and human capital

Incident action planning

Financial management







Mass care

Disaster housing

Human services

 Resource support (facility space, office equipment and

supplies, contracting services, etc.)









Public health

Medical

Mental health services

Mortuary services





Life-saving assistance

Urban search and rescue

 Environmental safety and short- and long-term cleanup









Nutrition assistance

Animal and plant disease/pest response

Food safety and security

Natural and cultural resources and historic properties

protection and restoration

ESF# 1 - Transportation

ESF #2 - Communications

ESF #3 - Public Works and

Engineering

ESF #4 - Firefighting

ESF #5 - Emergency

Management

ESF #6 - Mass Care, Housing,

and Human Services

ESF #7 - Resource Support

ESF #8 - Public Health and

Medical Services

ESF #9 - Urban Search and

Rescue

ESF #11 - Agriculture and

Natural Resources











Federal and civil transportation support

Transportation safety

Restoration/recovery of transportation infrastructure

Movement restrictions

Damage and impact assessment

ESF #10 - Oil and Hazardous

Materials Response
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threat or incident. Each ESF annex identifies the ESF coordinator and the primary and support agencies

pertinent to the ESF. Several ESFs incorporate multiple components, with primary agencies designated

for each component to ensure seamless integration of and transition between preparedness, prevention,

response, recovery, and mitigation activities. ESFs with multiple primary agencies designate an ESF

coordinator for the purposes of pre-incident planning and coordination. Following is a discussion of the

roles and responsibilities of the ESF coordinator and the primary and support agencies.

(2) ESF Coordinator. The ESF coordinator has ongoing responsibilities throughout

the prevention, preparedness, response, recovery, and mitigation phases of incident management.

The role of the ESF coordinator is carried out through a “unified command” approach as agreed

upon collectively by the designated primary agencies. Responsibilities of the ESF coordinator

include:

(a) Pre-incident planning and coordination.

(b) Maintaining ongoing contact with ESF primary and support agencies.

(c) Conducting periodic ESF meetings and conference calls.

(d) Coordinating efforts with corresponding private-sector organizations.

EMERGENCY SUPPORT FUNCTIONS DESCRIPTIONS

(cont’d)

Emergency Support

Function Scope

ESF# 12 - Energy

ESF# 13 - Public Safety and

Security

ESF# 14 - Long-Term

Community Recovery

ESF# 15 - External Affairs







Energy infrastructure assessment, repair, and restoration

Energy industry utilities coordination

Energy forecast









Facility and resource security

Security planning and technical and resource assistance

Public safety/security support

Support to access, traffic, and crowd control







Social and economic community impact assessment

Long-term community recovery assistance to states, local

governments, and the private sector

Mitigation analysis and program implementation









Emergency public information and protective action guidance

Media and community relations

Congressional and international affairs

Tribal and insular affairs

Figure D-2. Emergency Support Functions Descriptions (cont’d)
D-9

Overview of the National Response Plan and National Incident Management System

(e) Coordinating ESF activities relating to catastrophic incident planning and

critical infrastructure preparedness as appropriate.

(3) Primary Agencies. A federal agency designated as an ESF primary agency serves

as a federal executive agent under the FCO or (FRC for non-Stafford Act incidents), to accomplish

the ESF mission. When an ESF is activated in response to an incident, the primary agency is

responsible for:

(a) Orchestrating federal support within their functional area for an affected state.

(b) Providing staff for the operations functions at fixed and field facilities.

(c) Notifying and requesting assistance from support agencies.

(d) Managing mission assignments and coordinating with support agencies, as

well as appropriate state agencies.

(e) Working with appropriate private-sector organizations to maximize use of all

available resources.

(f) Supporting and keeping other ESFs and organizational elements informed of

ESF operational priorities and activities.

(g) Executing contracts and procuring goods and services as needed.

(h) Ensuring financial and property accountability for ESF activities.

(i) Planning for short-term and long-term incident management and recovery

operations.

(j) Maintaining trained personnel to support interagency emergency response and

support teams.

(4) Support Agencies. When an ESF is activated in response to an incident, support

agencies are responsible for:

(a) Conducting operations, when requested by DHS or the designated ESF primary

agency, using their own authorities, SMEs, capabilities, or resources.

(b) Participating in planning for short-term and long-term incident management and

recovery operations and the development of supporting operational plans, standard operating procedures,

checklists, or other job aids, in concert with existing first-responder standards.

(c) Assisting in the conduct of situational assessments.
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(d) Furnishing available personnel, equipment, or other resource support as

requested by DHS or the ESF primary agency.

(e) Providing input to periodic readiness assessments.

(f) Participating in training and exercises aimed at continuous improvement of

prevention, response, and recovery capabilities.

(g) Identifying new equipment or capabilities required to prevent or respond to

new or emerging threats and hazards, or to improve the ability to address existing threats.

(h) Nominating new technologies to DHS for review and evaluation that have

the potential to improve performance within or across functional areas.

(i) Providing information or intelligence regarding their agency’s area of expertise.

When requested, and upon approval of the SecDef, DOD provides CS during domestic incidents.

Accordingly, DOD is considered a support agency to all ESFs.

(5) ESF designations and relationships. Figure D-3 shows the designation of coordinator

and primary and support agencies for each ESF. All ESFs are supported by multiple agencies

and several have more than one primary agency.

c. Support Annexes. The support annexes provide guidance and describe the functional

processes and administrative requirements necessary to ensure efficient and effective

implementation of NRP incident management objectives.

(1) When the functions of a particular support annex are required to assist in the

management of an incident of national significance, the agency serving as the coordinator is

responsible for:

(a) Orchestrating a coordinated delivery of those functions and procedures

identified in the annex.

(b) Providing staff for the operations functions at fixed and field facilities.

(c) Notifying and subtasking cooperating agencies.

(d) Managing any tasks with cooperating agencies, as well as appropriate state

agencies.

(e) Working with appropriate private-sector organizations to maximize use of all available

resources.

(f) Supporting and keeping ESFs and other organizational elements informed of ongoing

annex activities.
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Overview of the National Response Plan and National Incident Management System

DESIGNATION OF EMERGENCY SUPPORT FUNCTIONS

COORDINATOR AND PRIMARY AND SUPPORT AGENCIES #4 - Firefighting #6 - Mass Care, Housing, and Human Services #10 - Oil and Hazardous Materials Response #12 - Energy #14 - Long-Term Community #5 - Emergency Management #7 - Resources Support #11 - Agricultural and Natural Resources Recovery #15 - External Affairs #3 - Public Works and #1 - Transportation #2 - Communications Engineering #9 - Urban Search and Rescue #13 - Public Safety and Security

Emergency Support Functions #8 - Public Health and Medical Services

USDA

USDA/FS

DOC

DOD

DOD/USACE

ED

DOE

HHS

DHS

DHS/FEMA

DHS/IAIP/NCS

DHS/USCG

HUD

DOI

DOJ

DOL

DOS

DOT

TREAS

VA

EPA

FCC

GSA

NASA

NRC

OPM

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SSA

TVA

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Agency

C= Emergency Support Function Coordinator P= Primary Agency S= Support Agency

Figure D-3. Designation of Emergency Support Functions Coordinator and

Primary and Support Agencies
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(g) Planning for short-term and long-term support to incident management and recovery

operations.

(h) Maintaining trained personnel to execute their appropriate support responsibilities.

Figure D-3. Designation of Emergency Support Functions Coordinator and

Primary and Support Agencies (cont’d)

DESIGNATION OF EMERGENCY SUPPORT

FUNCTIONS COORDINATOR AND PRIMARY AND

SUPPORT AGENCIES (cont’d)

ARC

DHS

DHS/IAIP/NCS

DHS/USCG

DOI

DOJ

DOL

DOS

DOT

ED

EPA

FCC

GSA

HUD

NASA

NRC

OPM

SBA

SSA

TREAS

TVA

USAID

USDA

USDA/FS

USPS

VA

DHHS

DHS/FEMA

DOC

DOD

DOD/USACE

DOE

American Red Cross

Department of Homeland Security

DHS/Information Analysis and Infrastructure Protection/National Communications System

Department of Health and Human Services

DHS/Federal Emergency Management Agency

DHS/US Coast Guard

Department of Commerce

Department of Defense

DOD/US Army Corps of Engineers

Department of Energy

Department of the Interior

Department of Justice

Department of Labor

Department of State

Department of Transportation

Department of Education

Environmental Protection Agency

Federal Communications Commission

General Services Administration

Department of Housing and Urban Development

National Aeronautics and Space Administration

Nuclear Regulatory Commission

Office of Personnel Management

Small Business Administration

Social Security Administration

Department of the Treasury

Tennessee Valley Authority

US Agency for International Development

US Department of Agriculture

USDA/Forest Service

US Postal Service

Department of Veterans Affairs
D-13

Overview of the National Response Plan and National Incident Management System

(2) When the procedures within a support annex are needed to support elements of an

incident, the coordinating agency will notify cooperating agencies of the circumstances.

Cooperating agencies are responsible for:

(a) Conducting operations, when requested by DHS or the coordinating agency, using

their own authorities, SMEs, capabilities, or resources.

(b) Participating in planning for short-term and long-term incident management and

recovery operations and the development of supporting operational plans, standard operating procedures,

checklists, or other job aids, in concert with existing first-responder standards.

(c) Furnishing available personnel, equipment, or other resource support as requested

by DHS or the support annex coordinator.

(d) Participating in training and exercises aimed at continuous improvement of prevention,

response, and recovery capabilities.

(e) Nominating new technologies or procedures that have the potential to improve

performance within or across functional areas to DHS for review and evaluation.

Note: DOD is considered a cooperating agency for the majority of support annexes.

d. Incident Annexes. The incident annexes address contingency or hazard situations requiring

specialized application of the NRP. The incident annexes describe the missions, policies, responsibilities,

and coordination processes that govern the interaction of public and private entities engaged in incident

management and emergency response operations across a spectrum of potential hazards. These annexes

are typically augmented by a variety of supporting plans and operational supplements.

(1) Each coordinating agency is responsible for:

(a) Orchestrating a coordinated delivery of those functions and procedures identified in

the annex.

(b) Providing staff for operations functions at fixed and field facilities.

(c) Notifying and subtasking cooperating agencies.

(d) Managing tasks with cooperating agencies, as well as appropriate state agencies.

(e) Working with appropriate private-sector organizations to maximize use of available

resources.

(f) Supporting and keeping ESFs and other organizational elements informed of annex

activities.
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(g) Planning for short-term and long-term support to incident management and recovery

operations.

(h) Maintaining trained personnel to provide appropriate support.

(2) Each cooperating agency is responsible for:

(a) Conducting operations, when requested by DHS or the coordinating agency, using

their own authorities, SMEs, capabilities, or resources.

(b) Participating in planning for incident management and recovery operations and

development of supporting operational plans, standard operating procedures, checklists, or other tools.

(c) Furnishing available personnel, equipment, or other resource support as requested

by DHS or the incident annex coordinator.

(d) Participating in training and exercises aimed at continuous improvement of prevention,

response, and recovery capabilities.

(e) Nominating new technologies or procedures to improve performance.

Note: DOD is considered a cooperating agency to the majority of incident annexes.

6. Understanding National Incident Management System

“This system will provide a consistent nationwide approach for federal, state, and

local governments to work effectively and efficiently together to prepare for, respond

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

To provide for interoperability and compatibility among federal, state, and local

capabilities, the NIMS will include a core set of concepts, principles, terminology,

and technologies covering the incident command system; multiagency

coordination systems; unified command; training; identification and management

of resources (including systems for classifying types of resources); qualifications

and certification; and the collection, tracking, and reporting of incident information

and incident resources.”

HSPD-5

a. DOD implements NRP policies and procedures as appropriate and consistent with departmental

authorities and responsibilities. IAW DOD policy, DOD organizations will adopt and implement procedures

consistent with the NIMS and the ICS at all DOD domestic installations. Additionally all DCOs, DCEs,

EPLOs, DOD incident commanders under the NIMS/ICS structure, and CS CJTF and JTF senior

staff must be knowledgeable of the NRP prior to participating in CS operations. NIMS provides a

framework for managing incident response and support activities as depicted in Figure D-4.
D-15

Overview of the National Response Plan and National Incident Management System

b. Concepts of “command” and “unity of command” have distinct legal and cultural meanings for

military forces and operations. For military forces, command runs from the President to the SecDef to

the commander of the combatant command to the commander of the forces. The “unified command”

concept utilized by civil authorities is distinct from the military chain of command. NIMS acknowledges

that incident command is exercised through a chain of command, defined as an orderly line of authority

within the ranks of the incident management organization. A distinct difference between the military and

civilian first responder designation of “commander” is that the formal military designation of “commander”

carries UCMJ authority. The relationship between military forces and the civilian incident commander

can be understood/explained in terms of “supporting and supported” with the incident commander

being the supported commander.

c. The ICS is a management system designed to enable effective and efficient domestic incident

management by integrating a combination of facilities, equipment, personnel, procedures, and

Figure D-4. National Incident Management System Framework

NATIONAL INCIDENT MANAGEMENT SYSTEM

FRAMEWORK

Incident

Advisory

Council

Regional

Response

Coordination

Center

JFO

Coordination

Group

Combatant

Command JTF

Task

Forces

Incident

Command

Post

Area

Commander

Incident

Command

Post

Incident

Command

Post

Joint

Field

Office

State

Emergency

Ops

Center

Local

Emergency

Ops

Center

DCO

National

Operations

Center

COORDINATION STRUCTURES COMMAND STRUCTURES 





Strategic Coordination

Prioritization Between

Incidents and

Associated Resource

Allocation

Focal Point or Issue

Resolution

 Direct On-Scene Emergency

Management









Support and

Coordination

Identifying Resource Shortages and Issues

Gathering and Providing Information

Implementing Multiagency Coordination

Entity Decisions

Multiagency Coordination Entity

Incident Command

DCO Defense Coordination Officer

EOC Emergency Operations Center

JTF Joint Task Force

OPS Operations

JFO Joint Field Office

Coordination

Command

Command Authority

(DCO in JTF)

EOCs/

Multiagency

Coordination

Centers

FIELD

LEVEL

REGIONAL

LEVEL

NATIONAL

LEVEL
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communications operating within a common organizational structure, designed to enable effective and

efficient domestic incident management. A basic premise of ICS is that it is widely applicable. It is used

to organize both near-term and long-term field-level operations for a broad spectrum of emergencies,

from small to complex incidents, both natural and man-made. ICS is used by all levels of government

— federal, state, local, and tribal — as well as by many private-sector organizations and NGOs. ICS

is also applicable across disciplines. It is normally structured to facilitate activities in five major functional

areas: command, operations, planning, logistics, and finance and administration.

d. Unified command is an application of the NIMS/ICS used when there is more than one agency

with incident jurisdiction or when incidents cross political jurisdictions. Agencies work together through

the designated members of the unified command to establish their designated incident commanders at a

single incident command post (ICP). In the unified command, entities develop a common set of objectives

and strategies, which provides the basis for a single incident action plan. The structure for NRP coordination

is based on the NIMS construct: ICS/unified command on-scene supported by an area command (if

needed) and multiagency coordination entities. The JFO provides resources in support of the unified

command and ICP(s). Acts of biological, chemical, radiological, and nuclear terrorism or other catastrophic

events represent particular challenges for the traditional ICS structure. Events that are not site specific,

are geographically dispersed, or evolve over longer periods of time will require extraordinary coordination

between federal, state, local, tribal, private-sector, and NGOs.

7. National Incident Management System Command and Coordination

a. There are four major components of NIMS: command and management; preparedness;

resource management; and communications and information management. This section focuses

on the three NIMS standard incident command structures making up command and management

to identify how they work together as a system to provide the national framework for preparing

for, preventing, responding to, and recovering from domestic incidents, regardless of cause,

size, or complexity. NIMS distinguishes between command authority and coordination authority.

Command authority is vested in the incident commander, whether a single incident commander

or an area commander, and is exercised through the ICS. Coordination authority is vested in

coordinating officers such as the FCO and DCO. Each coordinating officer has the authority to

make coordinating decisions within his or her jurisdiction, whether federal, state, or local.

b. The Incident Command System. The ICS defines the operating characteristics, interactive

management components, and structure of incident management and emergency response organizations

engaged throughout the life cycle of an incident. Direct tactical and operational responsibility for conducting

incident management activities rests with the incident commander. The incident command organizational

structure develops in a top-down, modular fashion that is based on the size and complexity of the

incident, as well as the specifics of the hazard environment created by the incident. The ICS organization

has five major functions, as described in Figure D-5. These are: command, operations, planning,

logistics, and finance and administration. When needed, separate functional elements can be established,

each of which may be further subdivided to enhance internal organizational management and external

coordination. Responsibility for the establishment and expansion of the ICS modular organization

ultimately rests with the incident commander, who bases these on the requirements of the situation. As

incident complexity increases, the organization expands from the top down as functional responsibilities
D-17

Overview of the National Response Plan and National Incident Management System

are delegated. Concurrently with structural expansion, the number of management positions expands to

adequately address the requirements of the incident. Incident command may be transferred from one

commander to a succeeding one. Transfers of incident command must include a transfer of command

briefing (which may be oral, written, or both). A transfer of command occurs when a more qualified

person assumes command; the incident situation changes over time, resulting in a legal requirement to

change command (e.g., multijurisdictional or multiagency involvement); there is normal turnover of

personnel on extended incidents; or the incident response is concluded and responsibility is transferred

to the home agency.

c. Multiagency Coordination Systems. The primary functions of multiagency coordination

systems are to support incident management policies and priorities; facilitate logistic support and resource

tracking; inform resource allocation decision using incident management priorities; coordinate incident

related information; and coordinate interagency and intergovernmental issues regarding incident

management policies, priorities, and strategies. These define the operating characteristics, interactive

management components, and organizational structure of supporting incident management entities engaged

at the federal, state, local, tribal, and regional levels through mutual-aid agreements and other assistance

arrangements. When incidents cross disciplinary or jurisdictional boundaries, or involve complex incident

management scenarios, a multiagency coordination entity, such as an emergency management agency,

may be used to facilitate incident management and policy coordination. The situation at hand and the

needs of the jurisdictions involved will dictate how these multiagency coordination entities conduct their

business, as well as how they are structured. Multiagency coordination entities typically consist of

principals (or their designees) from organizations and agencies with direct incident management

responsibility or with significant incident management support or resource responsibilities. These entities

are sometimes referred to as crisis action teams, policy committees, incident management groups,

executive teams, or other similar terms. As stated earlier, direct tactical and operational responsibility for

conducting incident management activities rests with the incident commander. Command authority does

TYPICAL INCIDENT COMMAND SYSTEM STRUCTURE

Command

Operations Logistics Planning Finance/

Administration

Figure D-5. Typical Incident Command System Structure
D-18

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JP 3-28

not reside in coordinating officers or coordinating entities although coordinating officers may be designated

with command authority. In some instances, EOCs may serve a dual function as a multiagency coordination

entity; in others, the preparedness organizations may fulfill this role. Regardless of the term or organizational

structure used, these entities typically provide strategic coordination during domestic incidents. If constituted

separately, multiagency coordination entities, preparedness organizations, and EOCs must coordinate

and communicate with one another to provide uniform and consistent guidance to incident management

personnel. The JFO is the multiagency coordination center of primary interest to the CCDR or the JFC.

d. Public Information Systems. These refer to processes, procedures, and systems for

communicating timely and accurate information to the public during crisis or emergency situations.

Under the ICS, the public information officer (PIO) is a key staff member supporting the incident

command structure. The PIO represents and advises the incident command on all public

information matters relating to the management of the incident. The PIO handles media and

public inquiries, emergency public information and warnings, rumor monitoring and response, media

monitoring, and other functions required to coordinate, clear with appropriate authorities, and disseminate

accurate and timely information related to the incident, particularly regarding information on public health

and safety and protection. The PIO is also responsible for coordinating public information at or near the

incident site and serving as the on-scene link to the joint information system (JIS). In a large-scale

operation, the on-scene PIO serves as a field PIO with links to the JIC, which is typically collocated

with the federal, regional, state, local, or tribal EOC tasked with primary incident coordination

responsibilities. The JIS provides the mechanism for integrating public information activities among

JICs, across jurisdictions, and with private-sector and NGOs. During emergencies, the public may

receive information from a variety of sources. The JIC provides a location for organizations participating

in the management of an incident to work together to ensure that timely, accurate, easy-to-understand,

and consistent information is disseminated to the public. JICs including processes for coordinating and

clearing public communications. The JIC develops, coordinates, and disseminates unified news releases.

News releases are cleared through the JFO coordination group to ensure consistent messages, avoid

release of conflicting information, and prevent negative impact on operations. This formal approval

process for news releases ensures protection of law enforcement-sensitive information or other sensitive

but unclassified information. DOD supports the national-level JIC and contributes to the overall unified

message. DOD and other agencies may issue their own news releases related to their policies, procedures,

programs, and capabilities; however, these should be coordinated with the JIC.

8. The Joint Field Office

a. The JFO is a temporary federal facility established locally to provide a central point for coordinating

federal, state, local, and tribal response to the incident. When incidents impact multiple states or localities,

multiple JFOs may be established. In these situations, one of the JFOs may be identified (typically in the

most heavily impacted area) to serve as the primary JFO and provide strategic leadership and coordination

for the overall incident management effort, as designated by the Secretary of Homeland Security. The

JFO organizational structure is built upon NIMS, but does not impede, supersede, or impact the ICP

ICS command structure. See Figure D-6 for a typical JFO established for a natural disaster.

b. JFO Coordination Group. Utilizing the NIMS ICS principles of unified command,

JFO activities are directed by a JFO coordination group, which may include the PFO, senior
D-19

Overview of the National Response Plan and National Incident Management System

federal law enforcement official (SFLEO), FCO/FRC, or other senior officials with primary jurisdictional

responsibility or functional authority for the incident. It also includes a limited number of principal state,

local, and tribal officials (such as the SCO), as well as NGO and private-sector representatives. The

JFO coordination group functions as a multiagency coordination entity and works jointly to establish

priorities (single or multiple incidents) and associated resource allocation, resolve agency policy issues,

and provide strategic guidance to support federal incident management activities. Generally, the PFO,

in consultation with the FCO and SFLEO, determines the composition of the JFO coordination group.

The exact composition of the JFO depends on the nature and magnitude of the incident, and generally

includes the personnel described in the following subsections.

(1) Principal Federal Official. The PFO is personally designated by the Secretary of

Homeland Security to facilitate federal support to the established ICS unified command structure

and to coordinate overall federal incident management and assistance activities across the spectrum

of prevention, preparedness, response, and recovery. The PFO ensures that incident management

efforts are maximized through effective and efficient coordination. The PFO provides a primary

point of contact and situational awareness locally for the Secretary of Homeland Security. The

Secretary of Homeland Security is not restricted to DHS officials when selecting a PFO. In

certain scenarios, a PFO may be predesignated by the Secretary of Homeland Security to facilitate

federal domestic incident planning and coordination at the local level outside the context of a

specific threat or incident. A PFO also may be designated in a pre-incident mode for a specific

geographic area based on threat and other considerations. In the event of a single incident with

national implications or in the case of multiple incidents, a national-level PFO may be designated

to coordinate federal response activities. The PFO may delegate duties to a deputy PFO, the

FCO, or other designated federal official as appropriate after an event transitions to long-term

recovery and/or cleanup operations.

(2) Federal Coordinating Officer. The FCO manages and coordinates federal resource

support activities related to Stafford Act disasters and emergencies and non-Stafford Act incidents. The

FCO assists the unified command and/or the area command. The FCO works closely with the PFO,

SFLEO, and other senior officials. In situations where a PFO has not been assigned, the FCO provides

overall coordination for the federal components of the JFO and works in partnership with the SCO to

determine and satisfy state and local assistance requirements. During national or geographically

widespread incidents such as a catastrophic hurricane impacting several adjacent states, the Secretary

of Homeland Security may, in other than terrorism incidents, choose to combine the roles of the PFO

and FCO in a single individual to help ensure synchronized federal coordination. In instances where the

FCO has also been assigned the role of the PFO, deputy FCOs may be designated to support the

PFO/FCO.

(3) Senior Officials. The JFO coordination group may also include officials representing

other federal departments or agencies with primary statutory responsibility for certain aspects of incident

management. Senior officials utilize existing authorities, expertise, and capabilities to assist in management

of the incident working in coordination with the PFO, FCO, SFLEO, and other members of the JFO

coordination group. When appropriate, the JFO coordination group may also include US attorneys or

other senior officials or their designees to provide expert legal counsel.
D-20

Appendix D

JP 3-28

Figure D-6. Joint Field Office Established for a Natural Disaster

JOINT FIELD OFFICE ESTABLISHED

FOR A NATURAL DISASTER

Operations

Section

Human Services

Branch

Situation Unit Coordination and

Planning Branch

Time Unit

Emergency

Services Branch

Resource Unit

Resource

Management

Branch

Procurement Unit

Infrastructure

Support Branch

Documentation

Supply Branch

Cost Unit

Planning

Section Logistics

Section

Finance/Admin.

Section

(Comptroller)

Principal Federal Official

Joint Field

Office

Coordination

Group

Joint Field

Office

Coordination

Staff

Joint Field Office

Sections

NOTE:

Depending on the

magnitude of the

disaster, a principal

federal official may

not always be

designated, in

which case the

federal

coordinating officer

will provide the

federal lead.

The state

coordinating officer

represents the

state, and in some

instances, the joint

field office

coordination group

may include local

and/or tribal

representatives as

well as

nongovernmental

organizations and

private-sector

representatives as

appropriate.

Senior

Federal

Officials

External Affairs

Office of

Inspector General

Defense

Coordinating

Officer

State

Coordinating

Officer

Federal

Coordinating

Officer

Chief of Staff

Safety Coordinator

Liaison Officer(s)

Infrastructure

Liaison

Others As Needed

Community

Recovery and

Mitigation Branch

Technical

Specialists

Demobilization

Unit

Information

Services

Branch

Compensation/

Claims Unit
D-21

Overview of the National Response Plan and National Incident Management System

(4) The CJTF may serve as a senior official. Based on the magnitude, type of the incident,

and the anticipated level of resource involvement, DOD may utilize a JTF to coordinate military activities

in support of the incident. If a JTF is established, its C2 element should be collocated with the JFO to

ensure a single common operating picture for the entire federal response that increases situational

awareness and eliminates redundancy. A CJTF exercises operational control of all allocated DOD

resources (excluding USACE resources, NG forces operating in state active duty or Title 32 USC

status, and, in some circumstances, DOD forces in support of the FBI). The collocation of the JTF

command element will not replace the requirement for a DCO/DCE as part of the JFO coordination

staff and the JTF command element will not coordinate requests for assistance. Rather, the JTF command

element will work with JFO coordination group members to ensure that there is a clear understanding of

the locations and roles of military resources involved in the operation.

c. JFO Coordination Staff. In accordance with NIMS, the JFO structure normally includes

a coordination staff. The JFO coordination group determines the extent of staffing based on the

type and magnitude of the incident.

(1) Safety. The safety coordinator ensures that the chief of staff and the PFO receive

coordinated, consistent, accurate, timely safety and health information and technical assistance

to ensure the safety of the personnel in the JFO.

(2) Legal Affairs. Serves as the primary legal advisor to the JFO coordination group

and may also work with each section chief to support programmatic, logistical, and personnel

matters as required.

(3) Security Officer. The security officer is responsible for safeguarding JFO personnel

and JFO facility security. When not assigned elsewhere, the security officer also is responsible

for information security and operational security, ensuring that sensitive information of all types

(e.g., classified information, sensitive law enforcement information, proprietary and personal

information, or export-controlled information) is handled in a way that not only safeguards the

information but also ensures that it gets to those who need access to it so that they can effectively and

safely conduct their missions.

(4) Infrastructure Liaison. Designated by DHS/Infrastructure Protection, serves as the

principal advisor to the JFO coordination group regarding all national- and regional-level critical

infrastructure/key resources (CI/KR) incident-related issues. The infrastructure liaison acts as liaison

between the national- and regional-level CI/KR, the private sector, and JFO activities.

(5) The DCO is appointed by DOD and serves as DOD’s single point of contact at the JFO,

with the exception of US Special Operations Command and USACE assets. Generally, requests for

CS originating at the JFO will be coordinated with and processed through the DCO. The DCO may

have a DCE consisting of a staff and military LNOs in order to facilitate coordination and support to

activated ESFs. Specific responsibilities of the DCO (subject to modification based on the situation)

include processing requirements for military support, forwarding RFAs to the appropriate military

organizations through DOD designated channels, and assigning military liaisons, as appropriate, to activated

ESFs. Requests for CS originating at the JFO will be coordinated and processed through the DCO
D-22

Appendix D

JP 3-28

with the exception of requests for USACE support, NG forces operating under state active duty or Title

32 USC (i.e., not in federal service), or, in some circumstances, DOD forces in support of the FBI.

(6) External Affairs Officer. The external affairs officer provides support to the JFO

leadership in all functions involving communications with external audiences. External affairs

includes PA, community relations, congressional affairs, state and local coordination, tribal affairs,

and international affairs, when appropriate. Resources for the various external affairs functions

are coordinated through ESF #15, “External Affairs.” The external affairs officer also is

responsible for overseeing operations of the federal JIC established to support the JFO.

d. JFO Sections Organization and Responsibility

(1) JFO Sections. The JFO organization adapts to the magnitude and complexity of

the situation, and incorporates the NIMS principles regarding span of control and organizational

structure. This structure includes the following sections: operations, planning, logistics, and

finance and administration. Although the JFO uses an ICS structure, the JFO does not manage

on-scene operations. Rather, incidents are managed at the scene through the ICP.

(a) Operations Section. The operations section coordinates operational support

to on-scene incident management efforts. Branches may be added or deleted as required,

depending on the nature of the incident. The operations section also is responsible for coordination

with other federal command posts that may be established to support incident management

activities. For NSSEs (see Figure D-7 for display of a JFO for an NSSE), the security operations

branch may be added to coordinate protection and security efforts. During terrorist incidents,

the FBI JOC is incorporated as the law enforcement investigative branch within the operations

section (see Figure D-8 for display of a JFO for a terrorist incident). For all other events, a law

enforcement investigative branch or security operations branch may be established based on the specific

requirements of the incident.

(b) Planning Section. The planning section provides current information to the JFO

coordination group to ensure situational awareness, determine cascading effects, identify national

implications, and determine specific areas of interest requiring long-term attention. The planning section

also provides technical and scientific expertise. The planning section may also include a NOC representative

who aids in the development of reports for the NOC and incident advisory council.

(c) Logistics Section. This section coordinates logistic support that includes: control

and accountability for federal supplies and equipment; resource ordering; delivery of equipment, supplies,

and services to the JFO and other field locations; facility location, setup, space management, building

services, and general facility operations; transportation coordination and fleet management services; and

information and technology systems services, administrative services such as mail management and

reproduction, and customer assistance.

(d) Finance and Administration Section (Comptroller). The finance and

administration section is responsible for the financial management, monitoring, and tracking of

all federal costs relating to the incident and the functioning of the JFO while adhering to all
D-23

Overview of the National Response Plan and National Incident Management System

federal laws, acts, and regulations. The position of the finance and administration chief will be exclusively

held by a comptroller who serves as the senior financial advisor to the team leader (e.g., FCO) and

Figure D-7. Joint Field Office for a National Special Security Event

JOINT FIELD OFFICE FOR A NATIONAL

SPECIAL SECURITY EVENT

Operations

Section

Security Operations Branch

(Multiagency Command Center)

Law Enforcement Investigative

Operations Branch

(Federal Bureau of Investigation

Joint Operations Center)

Response and Recovery

Operations Branch

Planning

Section Logistics

Section

Finance/Admin.

Section

(Comptroller)

Joint Field Principal Federal Official

Office

Coordination

Group

Joint Field

Office

Coordination

Staff

Joint Field Office

Sections

NOTE:

In some instances,

the joint field

office coordination

group may include

local and/or tribal

representatives, as

well as

nongovernmental

organizations and

private-sector

representatives as

appropriate.

Senior

Federal

Officials

External Affairs

Office of

Inspector General

Defense

Coordinating

Officer

State

Coordinating

Officer

Federal

Coordinating

Officer

Chief of Staff

Safety Coordinator

Liaison Officer(s)

Infrastructure

Liaison

Others As Needed
D-24

Appendix D

JP 3-28

Figure D-8. Joint Field Office for a Terrorist Incident

JOINT FIELD OFFICE FOR A TERRORIST INCIDENT

Operations

Section

Planning

Section Logistics

Section

Finance/Admin.

Section

(Comptroller)

Joint Field

Office

Coordination

Group

Joint Field

Office

Coordination

Staff

Joint Field Office

Sections

(Branches and

Subunits

Established as

Needed)

NOTE:

The state coordinating

officer represents the

state, and in some

instances, the joint

field office

coordination group

may include local

and/or tribal

representatives as

well as

nongovernmental

organizations and

private-sector

representatives as

appropriate.

External Affairs

Office of

Inspector General

Defense

Coordinating

Officer

Chief of Staff

Safety Coordinator

Liaison Officer(s)

Infrastructure

Liaison

Others As Needed

Law Enforcement

Investigative Operations

Branch (Federal Bureau of

Investigation Joint

Operations Center)

Domestic

Emergency

Support Team

Response and

Recovery

Operations Branch

Principal Federal Official

FBI Special

Agent-in-Charge

State Coordinating

Officer

Senior Federal

Officials

Federal

Coordinating

Officer

FBI Federal Bureau of Investigation
D-25

Overview of the National Response Plan and National Incident Management System

represents the coordinating agency’s chief financial officer (CFO) as prescribed by the Chief Financial

Officers Act of 1990 (Public Law 101-576).

(2) ESF Operations in the JFO Sections. Based on the requirements of the incident,

federal departments and agencies that serve as ESF coordinators execute their roles and

responsibilities defined in the ESF annexes, including providing the interagency staff to support

operations of the JFO. Depending on the incident, deployed elements of the ESFs may also

participate in the staffing of the ICP; however, they more typically organizationally fall within

the operations section of the JFO, and other sections as required. Under the NRP, each ESF is

structured to provide optimal support of evolving incident management requirements. Current

procedures require integration of the ESFs into the JFO sections rather than as stand-alone

entities. Figure D-9 is a sample mapping of ESF positioning within a JFO.

e. Federal-to-Federal Support. Federal-to-federal support refers to the circumstance in

which a federal department or agency requests federal resource support under the NRP that is

not addressed by the Stafford Act or other mechanisms (e.g., EOs, MOUs, memoranda of

agreement). This support is coordinated by DHS using the multiagency coordination structures

established in the NRP and IAW the NIMS. Federal agencies participating in the NRP will

request and provide federal-to-federal support by executing interagency or intra-agency

reimbursable agreements, IAW the Economy Act (Title 31 USC, Section 1535) or other applicable

authorities. Federal agencies providing mutual aid support may request reimbursement from

the requesting agency for eligible expenditures. DHS will use the ESFs as the mechanism for

coordinating required support from other agencies. When such DHS assistance is provided,

DHS coordinates federal resources under the authority provided in HSPD-5. In these situations,

DHS designates a FCO to perform the resource coordination function. See Figure D-10 for a sample

federal-to-federal support JFO.

9. Proactive Federal Response and Catastrophic Events

a. The NRP establishes policies, procedures, and mechanisms for a proactive federal response to

catastrophic events. A catastrophic event is any natural or man-made incident, including terrorism,

which results in extraordinary levels of mass casualties, damage, or disruption severely affecting the

population, infrastructure, environment, economy, national morale, and/or government functions. A

catastrophic event could result in sustained national impacts over a prolonged period of time; almost

immediately exceeds resources normally available to state, local, tribal, and private-sector authorities in

the impacted area; and significantly interrupts governmental operations and emergency services to such

an extent that national security could be threatened. The Secretary of Homeland Security will declare all

catastrophic events as incidents of national significance.

b. The NRP Catastrophic Incident Annex and the NRP Catastrophic Incident Supplement (FOUO)

address resource and procedural implications of catastrophic events to ensure the rapid and efficient

delivery of resources and assets, including special teams, equipment, and supplies that provide critical

lifesaving support and incident containment capabilities. These assets may be so specialized or costly

that they are either not available or are in insufficient quantities in most localities. The Secretary of

Homeland Security may choose to activate and deploy assets prior to or immediately following any
D-26

Appendix D

JP 3-28

incident, to include those with catastrophic ramifications. For no-notice or short notice catastrophic

events when there is little or no time to assess the requirements of the state and local authorities, all

federal departments and agencies and the ARC initiate actions to mobilize and deploy all resources as

planned for in the NRP-Catastrophic Incident Supplement.

c. Agencies responsible for these assets will keep DHS apprised, through the NOC, of their

ongoing status and location until the JFO is established. Upon arrival at the scene, federal assets will

coordinate with the unified command, the SFLEO, and the JFO (or its forward elements) when

Figure D-9. Sample Mapping of Emergency Support Function Positioning

within a Joint Field Office

SAMPLE MAPPING OF EMERGENCY SUPPORT FUNCTION

POSITIONING WITHIN A JOINT FIELD OFFICE

Operations Planning

Resource

Unit

Documentation

Unit

Technical/

Scientific

Unit

Intelligence

Unit

Demobilization

Unit

Situation

Unit

ESF #5

ESF #15 ESF #5

ESF #4

ESF #8

ESF #9

ESF #10

ESF #11

ESF #13

WSHSA ESF #5

ESF #8

ESF #10

ESF #13

ESF #5

ESF #8

ESF #5

ESF #7

ESF #1

ESF #4

ESF #5

ESF #7

ESF #1

ESF #4

ESF #5

ESF #7

ESF #6

ESF #11

ESF #14 ESF #1

ESF #3

ESF #5

ESF #13

ESF #15

ESF #2

ESF #3

ESF #5

ESF #4

ESF #5

ESF #7

ESF #5

ESF #7

ESF #10

ESF #5

ESF #7

ESF #1

ESF #2

ESF #3

ESF #8

ESF #12

ESF #14

ESF #2

ESF #5

ESF #8

ESF #10

ESF #11

ESF #12

ESF #14

WSHSA

ESF #5

ESF #13

ESF #5

ESF #7

ESF #3

ESF #6

ESF #14

ESF #5

ESF #7

ESF #5

ESF #7

ESF #5

ESF #13

Logistics Finance/

Admin.

Law

Enforcement

Investigative

Operations

Branch

(Federal

Bureau of

Investigation

Joint

Operations

Center)

Security

Operations

Branch

(Multiagency

Command

Center)

Emergency

Services

Group

Operations

Group

Human

Services

Group Operations

Support

Group

Infrastructure

Support

Group

Recovery

and

Mitigation

Group

Response

and Recovery

Operations

Branch

Service

Branch

Support

Branch

Medical

Unit

Supply

Unit

Ground

Support

Unit

Communications

Unit

Facilities

Unit

Air

Support

Unit

Claims and

Compensation

Unit

Cost Unit

Procurement

Unit

Time

Unit
D-27

Overview of the National Response Plan and National Incident Management System

established. Demobilization processes, including full coordination with the JFO coordination group, are

initiated either when the mission is completed or when it is determined the magnitude of the event does

not warrant continued use of the asset.

Figure D-10. Joint Field Office for Federal-to-Federal Support

JOINT FIELD OFFICE FOR FEDERAL TO FEDERAL SUPPORT

Operations

Section

(Branches and Subunits

Established as Needed)

Planning

Section

Logistics

Section

Finance/Admin.

Section

(Comptroller)

Principal Federal Official

Joint Field

Office

Coordination

Group

Joint Field

Office

Coordination

Staff

Joint Field Office

Sections

NOTE:

A federal

coordinating

officer is present if

emergency

support functions

are activated, and

will represent the

Department of

Homeland Security

Secretary if a

principal federal

official is not

assigned.

Senior

Federal

Officials

External Affairs

Office of

Inspector General

Defense

Coordinating

Officer

State/Tribal/

Local Officials

Federal

Coordinating

Official

Chief of Staff

Safety Coordinator

Liaison Officer(s)

Infrastructure

Liaison

Others As Needed
D-28

Appendix D

JP 3-28

Intentionally Blank
APPENDIX E

DEPARTMENT OF HOMELAND SECURITY

E-1

1. Introduction

DHS provides a unifying core for the vast national network of organizations and institutions

involved in efforts to secure our nation. DHS prevents and deters terrorist attacks, protects

against and responds to other threats and hazards to the homeland, ensures safe and secure

borders, manages the immigration process, and preserves the free flow of commerce. Figure

E-1 shows the organizational structure of DHS.

2. Directorates

a. FEMA leads DHS preparedness efforts for all hazards, and manages federal response

and recovery efforts following any national incident. FEMA also initiates proactive mitigation

activities, trains first responders, and manages the National Flood Insurance Program. FEMA

works in partnership with other organizations that are part of the nation’s emergency management

system including state and local emergency management agencies, 27 federal agencies and the ARC.

b. The Management Directorate is responsible for the DHS’s budgets and appropriations,

expenditure of funds, accounting and finance, procurement, human resources, information technology

systems, facilities and equipment, and the identification and tracking of performance measurements.

The office of the CFO also serves as a direct report component of DHS.

c. The National Protection and Programs Directorate works with state, local, and private

sector partners to identify threats, determine vulnerabilities, and target resources where risk is

greatest, thereby safeguarding our borders, seaports, bridges and highways, and critical information

systems.

d. The Science and Technology Directorate has the primary responsibility for research,

development, test and evaluation efforts in support of DHS’s mission.

3. Other Operational Components (besides Federal Emergency Management

Agency)

a. US Citizenship and Immigration Services is responsible for administering immigration

and naturalization functions and establishing immigration services policies and priorities.

b. US Customs and Border Protection is responsible for protecting our Nation’s borders

in order to prevent terrorists and terrorist weapons from entering the United States, while

facilitating the flow of legitimate trade and travel.

c. USImmigration and Customs Enforcement is the largest investigative arm of DHS and is

charged with investigating immigration violations and preventing terrorist and criminal activity by targeting

the people, money, and materials that support terrorist and criminal organizations.
E-2

Appendix E

JP 3-28 Figure E-1. Department of Homeland Security Organizational Chart

DEPARTMENT OF HOMELAND SECURITY ORGANIZATIONAL CHART

SECRETARY

Deputy Secretary

Chief of Staff

Executive Secretariat

Military Advisor

MANAGEMENT

Under Secretary

SCIENCE &

TECHNOLOGY

Under Secretary

TRANSPORTATION

SECURITY

ADMINISTRATION

Assistant Secretary

CHIEF

FINANCIAL

OFFICER

NATIONAL

PROTECTION &

PROGRAMS

Under Secretary

US CUSTOMS &

BORDER

PROTECTION

Commissioner

FEDERAL LAW

ENFORCEMENT

TRAINING CENTER

Director

DOMESTIC

NUCLEAR DETECTION

OFFICE

Director

OFFICE OF

INTELLIGENCE &

ANALYSIS

Assistant Secretary

OFFICE OF HEALTH

AFFAIRS

Assistant Secretary

Chief Medical Officer

POLICY

Assistant Secretary

US SECRET

SERVICE

Director

OPERATIONS

COORDINATION

Director

GENERAL COUNSEL

US IMMIGRATION &

CUSTOMS

ENFORCEMENT

Assistant Secretary

US CITIZENSHIP &

IMMIGRATION

SERVICES

Director

COUNTERNARCOTICS

ENFORCEMENT

Director

LEGISLATIVE

AFFAIRS

Assistant Secretary

US

OMBUDSMAN

CITIZENSHIP &

IMMIGRATION

SERVICES

PUBLIC AFFAIRS

Assistant Secretary

FEDERAL

EMERGENCY

MANAGEMENT

Administrator

CHIEF PRIVACY

OFFICER

INSPECTOR

GENERAL

US COAST GUARD

Commandant

CIVIL RIGHTS &

CIVIL LIBERTIES

Officer
E-3

Department of Homeland Security

d. The Transportation Security Administration protects the Nation’s transportation

systems (which includes a complex system comprised of aircraft, ships, rail, motor vehicles,

airports, seaports, and transshipment facilities, roads, railways, bridges and pipelines) to ensure

freedom of movement for people and commerce.

e. USCG protects the public, the environment, and US economic interests — in the Nation’s

ports and waterways, along the coast, on international waters, or in any maritime region as

required to support national security. The USCG operates globally, on the high seas and the US

territorial waters. As a federal law enforcement component and armed force for the United

States, it leads in maritime drug interdiction and co-leads in air drug interdiction operations. The

USCG leads in coordinating all maritime security planning and operations in the ports and

waterways, as well as maritime search and rescue.

f. The US Secret Service protects the President and other high-level officials and investigates

counterfeiting and other financial crimes, including financial institution fraud, identity theft,

computer fraud, and computer-based attacks on our Nation’s financial, banking, and

telecommunications infrastructure.

4. Support Components

a. The Citizenship and Immigration Services Ombudsman provides recommendations

for resolving concerns with US Citizenship and Immigration Services in order to ensure national

security and the integrity of the legal immigration system.

b. The Office of Civil Rights and Civil Liberties helps shape policies that are mindful of

civil rights and civil liberties, and serves as an information and communications channel with

the public regarding these issues.

c. The Office of Counter Narcotics Enforcement (CNE) is the principal coordinating

office for all department CD policy matters. CNE develops and coordinates CD policy within

the department and between the department and other federal, state, local, and tribal departments/

agencies.

d. The Domestic Nuclear Detection Office works to enhance the nuclear detection efforts

of federal, state, territorial, tribal, local governments, and the private sector to ensure a coordinated

response to such threats.

e. The Office of the Executive Secretary supports the Secretary of Homeland Security with

accurate and timely dissemination of information and written communications throughout the department

and with our HS partners and facilitates communications among the 28 DHS components.

Communications managed by the Executive Secretariat also include coordination with other federal

agencies, the HSC, and National Security Council .
E-4

Appendix E

JP 3-28

f. The Federal Law Enforcement Training Center provides career-long training to law

enforcement professionals to help them fulfill their responsibilities safely and proficiently.

g. The Office of the General Counsel provides legal advice to the Secretary of Homeland

Security and department leadership, oversees the regulatory process, reviews legislative proposals, and

addresses issues that arise in litigation.

h. The Recovery and Rebuilding of the Gulf Coast Region Recovery office coordinates

federal support for the Gulf Coast recovery efforts.

i. The Office of Health Affairs serves as DHS’s principal agent for all medical and public

health matters, working to establish a scientifically rigorous, intelligence-based, medical and

biodefense architecture that ensures the health and medical security of our Nation.

j. The Office of the Inspector General is responsible for conducting and supervising

audits, investigations, and inspections relating to the programs and operations of DHS, recommending

ways to carry out responsibilities in the most effective, efficient, and economical manner possible.

k. The Office of Intelligence and Analysis is responsible for using information and

intelligence from multiple sources to identify and assess current and future threats to the United

States.

l. The Office of Legislative Affairs provides executive direction and coordination for all

communications and relationships between DHS and Congress.

m. The Office of Operations Coordination is responsible for monitoring the security of

the United States on a daily basis and coordinating activities within the department and with HS

advisors, law enforcement partners, and critical infrastructure operators in all 50 states and more than

50 major urban areas nationwide. One component of this office is the NOC.

n. The Office of the Military Advisor to the Secretary of Homeland Security provides

counsel to the Secretary and department leadership to ensure a collaborative, cooperative, and

coordinated approach to HS, HD, and incident management.

o. The Office of Policy is the primary policy formulation and coordination component for DHS.

p. The Office of the ChiefPrivacy Officer works to minimize the impact of DHS’s activities on

the individual’s privacy.

q. The Office of Public Affairs is responsible for oversight and management of external and

internal communications for DHS.
APPENDIX F

KEY CIVIL SUPPORT LEGAL AND POLICY DOCUMENTS

F-1

1. Key National Guidance

a. HSPD-5, Management of Domestic Incidents. Assigns the Secretary of the Department

of Homeland Security as the principal Federal official for domestic incident management to

coordinate the Federal government’s resources utilized in response to, or recovery from terrorist

attacks, major disasters, or other emergencies. The Federal government assists state and local

authorities when their resources are overwhelmed, or when Federal interests are involved. Nothing

in the directive impairs or otherwise affects the authority of SecDef over DOD, including the

chain of command for military forces. HSPD-5 directs that SecDef shall provide support to civil

authorities for domestic incidents as directed by the President or when consistent with military readiness

and appropriate under the circumstances and the law. SecDef retains command of military forces

providing CS. Additionally, HSPD-5 directed the development of the NIMS to provide a consistent

nationwide approach for federal, state, and local governments to work effectively and efficiently together

to prepare for, respond to, and recover from domestic incidents. HSPD-5 also directs the development

of the NRP, including classified annexes if required. The NRP, using NIMS, provides the structural

mechanisms, national level policy, and operational direction for federal support to state and local incident

managers

b. HSPD-8, National Preparedness. HSPD-8 established policies to strengthen the

preparedness of the United States to prevent and respond to threats and actual domestic terrorist

attacks, major disasters, and other emergencies by requiring a national domestic all-hazards

preparedness goal, establishing mechanisms for improved delivery of federal preparedness

assistance to state and local governments, and outlining actions to strengthen preparedness

capabilities of federal, state, and local entities.

c. The National Strategy for Homeland Security. Prepared for the President by the

Office of Homeland Security, this document lays out the strategic objectives, organization and

critical areas for HS. The strategy identifies critical areas that focus on preventing terrorist

attacks, reducing the nation’s vulnerabilities, minimizing the damage and recovering from attacks

that do occur. These critical areas are compatible with the DOD framework for HS that is

discussed in this publication.

d. The Homeland Security Act of 2002. This Act established the Department of Homeland

Security to coordinate all federal HS activities to protect the Nation against threats to the homeland.

To better facilitate the overarching HS mission, Congress established DHS by merging numerous

agencies into a single department.

e. The Robert T. Stafford Disaster Relief and Emergency Assistance Act. This Actset the

policy of the Federal government to provide an orderly and continuing means of supplemental assistance

to state and local governments in their responsibilities to alleviate the suffering and damage that result

from major disasters or emergencies. It is the primary legal authority for federal participation in domestic

disaster relief. Under the Stafford Act, the President may direct federal agencies, including DOD, to
F-2

Appendix F

JP 3-28

support disaster relief. DOD may be directed to provide assistance in one of three different scenarios:

a Presidential declaration of a major disaster, a Presidential order to perform emergency work for the

preservation of life and property, or a Presidential declaration of emergency.

f. The Economy Act (Title 31 USC, Section 1535). The Economy Act permits one federal

agency to request the support of another provided that the requested services cannot be obtained

more cheaply or conveniently by contract. Under this act, a federal agency with lead responsibility

may request the support of DOD without a Presidential declaration of an emergency as required

by the Stafford Act.

g. Posse Comitatus Act (Title 18 USC, Section 1385). This federal statute places strict

limits on the use of federal military personnel for law enforcement. Enacted in 1878, the PCA

prohibits the willful use of the US Army (and later, the US Air Force) to execute the laws, except

as authorized by the Congress or the US Constitution. Although the PCA, by its terms, refers

only to the Army and Air Force, DOD policy extends the prohibitions of the Act to US Navy and

Marine Corps forces, as well. Specifically prohibited activities include: interdiction of a vehicle,

vessel, aircraft, or similar activity; search and/or seizure; arrest, apprehension, “stop-and-frisk”

detentions, and similar activities; and use of military personnel for surveillance or pursuit of

individuals, or as undercover agents, informants, investigators, or interrogators. Additionally,

federal courts have recognized exceptions to the PCA. These common law exceptions are

known as the “military purpose doctrine” and the “indirect assistance” exceptions. Exceptions

and/or circumstances not falling under PCA include:

(1) Actions that are taken for the primary purpose of furthering a military or foreign

affairs function of the United States.

(2) Federal troops acting pursuant to the President’s Constitutional and statutory

authority to respond to civil disorder.

(3) Actions taken under express statutory authority to assist officials in executing the

laws, subject to applicable limitations.

(4) CD operations authorized by statute.

The PCA does not apply to NG forces operating in state active duty or Title 32 USC status,

nor to the USCG, which operates under Title 14 USC authority.

h. Title 10 USC (Armed Forces). Title 10 USC provides guidance on the Armed Forces.

Guidance is divided into 5 subtitles. One on general military law and one each for the US Army,

US Navy and US Marine Corps, the US Air Force and the RC. Chapter 18 (sections 371-382) of

Title 10 USC is entitled and governs Military Support for Civilian LEAs.

i. Title 32 USC (National Guard). Title 32 USC authorizes the use of federal funds to train NG

members while they remain under the C2 of their respective state governors. In certain limited instances,

specific statutory or Presidential authority allows for those forces to perform operational missions funded
F-3

Key Civil Support Legal and Policy Documents

by the Federal government, while they remain under the control of the governor. Examples of those

exceptions include the employment of WMD-CSTs, CD missions, and operations authorized by the

President or SecDef under 32 USC 502(f) (i.e., Airport Security Mission in 2001 and Southwest

Border Security Mission in 2006).

2. Key Department of Defense Guidance

a. Unified Command Plan (UCP). The UCP provides basic guidance to all unified CCDRs;

establishes their missions, responsibilities, and force structure; delineates the general geographical

AORs for GCCs; and specifies functional responsibilities for functional CCDRs.

b. Contingency Planning Guidance (CPG). The CPG reflects SecDef’s written policy

guidance to the CJCS for contingency planning. It is issued with the approval of the President

after consultation with the CJCS, provides the focus for the guidance in the NSS and Strategic

Planning Guidance (SPG). The SPG is the principal source document for CJCSI 3110.01, Joint

Strategic Capabilities Plan.

c. Strategic Planning Guidance. The SPG provides direction for DOD components to

develop the future years defense program and the President’s budget submission. The four

defense policy goals are to assure, dissuade, deter, and decisively defeat. The goals are articulated

in a planning construct of deterring forward and winning decisively while defending at home.

The SPG additionally lists the priorities of SecDef: winning the Global War on Terrorism,

strengthening combined/joint warfighting capabilities, transforming the joint force, optimizing

intelligence capabilities, counterproliferation, improving force manning, developing and

implementing new concepts for global engagement, strengthening our ability to fulfill our

responsibilities in HS, streamlining DOD processes, and reorganizing DOD and USG to deal

with prewar opportunities and postwar responsibilities.

d. Chairman of the Joint Chiefs of Staff Concept Plan 0500, Military Assistance to

Domestic Consequence Management Operations in Response to a Chemical, Biological,

Radiological, Nuclear, or High-Yield Explosives Situation. This plan provides SecDef with a

wide range of military options to assist in the domestic CM operations in response to a CBRNE

incident. It also informs GCCs of the full range of their CM responsibilities and it provides

information and guidance for the conduct of domestic CM operations.

e. CJCSI 3110.16, Military Capabilities, Assets, and Units for Chemical, Biological,

Radiological, Nuclear, and High-Yield Explosives Consequence Management Operations.

This instruction identifies and describes specific military capabilities, assets, and units potentially

available to support military CM operations in response to CBRNE incidents. Although an

actual CBRNE incident would involve a large array of DOD assets, this instruction primarily

focuses on CM technical support and capabilities that are not generally found throughout the

force. This instruction lists selected CBRNE CM capabilities, assets, and units by Service.

f. CJCSI 3121.01B, Standing Rules of Engagement/Standing Rules for the Use of Force

for US Forces. SRUF provide operational guidance and establish fundamental policies and procedures
F-4

Appendix F

JP 3-28

governing the actions taken by DOD forces performing CS missions (e.g., military assistance to civil

authorities and military support for civilian LEAs) and routine Service functions (including antiterrorism/

FP duties) within US territory (including US territorial waters). The SRUF also apply to DOD forces,

civilians and contractors performing law enforcement and security duties at all DOD installations (and

off-installation, while conducting official DOD security functions), within or outside US Territory, unless

otherwise directed by the SecDef. Additional examples of these missions, within the US, include

protection of critical US infrastructure both on and off DOD installations, military assistance and support

to civil authorities, DOD support during civil disturbance and DOD cooperation with federal, state and

local law enforcement authorities, including CD support.

g. CJCSI 3125.01, Military Assistance to Domestic Consequence Management Operations

in Response to a Chemical, Biological, Radiological, Nuclear, or High-Yield Explosives

Situation. This instruction provides operational and policy guidance and instructionsfor US military

forces supporting domestic CM operations in preparation for responding to a CBRNE situation. This

instruction only applies to domestic CM operations. This instruction is of specific importance to the

geographic combatant commands with domestic CBRNE responsibilities.

h. CJCSI 3710.01B, DOD Counterdrug Operational Support. This instruction promulgates

SecDef delegation of authority to approve certain CD operational support missions. It also

provides, IAW each fiscal year’s national defense authorization act, instruction on authorized

types of DOD (Title 10 USC) CD support to the federal agency with lead responsibility, other

government agencies, and foreign nations.
APPENDIX G

REFERENCES

G-1

The development of JP 3-28 is based on the following primary references:

1. General

a. EO 12333, United States Intelligence Activities.

b. EO 12656, Assignment of Emergency Preparedness Responsibilities.

c. HSPD-5, Management of Domestic Incidents.

d. HSPD-7, Critical Infrastructure Identification, Prioritization, and Protection.

e. HSPD-8, National Preparedness.

f. National Security Act of 1947.

g. Uniting and Strengthening America by Providing Appropriate Tools Required to Intercept and

Obstruct Terrorism (Patriot) Act of 2001.

h. Homeland Security Act of 2002.

i. National Strategy for Homeland Security.

j. Strategy for Homeland Defense and Civil Support.

k. National Response Plan, and Notice of Change to the National Response Plan.

l. National Incident Management System.

m. National Military Strategy for Cyberspace Operations.

n. The North American Aerospace Defense Command Agreement and Terms of Reference and

the Canadian/US Basic Security Document 100/35.

o. Presidential Decision Directive-14, Counternarcotics.

p. Title 10, USC, Armed Forces.

q. Title 14, USC, United States Coast Guard.

r. Title 18, USC, Section 1385, The Posse Comitatus Act.
G-2

Appendix G

JP 3-28

s. Title 31, USC, Section 1535, The Economy Act.

t. Title 32, USC, National Guard.

u. Title 42, USC, Section 5121 et seq, The Stafford Act, as amended.

v. Unified Command Plan.

w. National Security Strategy.

2. Department of Defense

a. DODD 1100.20, Support and Services for Eligible Organizations and Activities Outside

the Department of Defense.

b. DODD 2000.15, Support to Special Events.

c. DODD 3000.3, Policy for Non-Lethal Weapons.

d. DODD 3020.36, Assignment of National Security Emergency Preparedness (NSEP)

Responsibilities to DOD Components.

e. DODD 3020.40, Defense Critical Infrastructure Program (DCIP).

f. DODD 3025.1, Military Support to Civil Authorities (MSCA).

g. DODD 3025.12, Military Assistance for Civil Disturbances (MACDIS).

h. DODD 3025.13, Employment of Department of Defense Resources in Support of the

United States Secret Service.

i. DODD 3025.14, Protection and Evacuation of US Citizens and Designated Aliens in

Danger Areas Abroad (Short Title: Noncombatant Evacuation Operations).

j. DODD 3025.15, Military Assistance to Civil Authorities.

k. DODD 3025.16, Military Emergency Preparedness Liaison Officer (EPLO) Program.

l. DODD 3150.5, DOD Response to Improvised Nuclear Device (IND) Incidents.

m. DODD 3150.8, DOD Response to Radiological Accidents.

n. DODD 5200.27, Acquisition of Information Concerning Persons and Organizations Not

Affiliated with the Department of Defense.
G-3

References

o. DODD S-5210.36, Provision of DOD Sensitive Support to DOD Components and Other

Departments and Agencies of the United States Government.

p. DODD 5525.5, DOD Cooperation with Civilian Law Enforcement Officials.

q. DODD 5410.18, Public Affairs Community Relations Policy.

r. DODD 5500.7-R, Standards of Conduct.

s. DODI 2000.18, DOD Installation Chemical, Biological, Radiological, Nuclear and HighYield Explosive Emergency Response Guidelines.

t. DODI 3001.02, Personnel Accountability in Conjunction with Natural or Manmade

Disasters.

u. DODI 5525.10, Using Military Working Dog Teams (MWDTs) to Support Law

Enforcement Agencies in Counterdrug Missions.

v. DOD Manual 3025.1-M, DOD Manual for Civil Emergencies.

w. Strategic Planning Guidance.

x. Contingency Planning Guidance.

y. Quadrennial Defense Review.

z. USNORTHCOM CONPLAN 3501, Defense Support of Civil Authorities.

aa. USNORTHCOM CONPLAN 3502, Civl Disturbance Operations.

3. Joint Publications

a. JP 1-0, Personnel Support to Joint Operations.

b. JP 1-02, DOD Dictionary of Military and Associated Terms.

c. JP 1-05, Religious Support in Joint Operations.

d. JP 1-06, Financial Management Support in Joint Operations.

e. JP 2-0, Joint Intelligence.

f. JP 3-0, Joint Operations.

g. JP 3-07.2, Antiterrorism.
G-4

Appendix G

JP 3-28

h. JP 3-07.4, Joint Counterdrug Operations.

i. JP 3-08, Interagency, Intergovernmental Organization and Nongovernmental Organization

Coordination During Joint Operations, (Vols I and II).

j. JP 3-27, Homeland Defense.

k. JP 3-33, Joint Task Force Headquarters.

l. JP 3-34, Joint Engineer Operations.

m. JP 3-35, Deployment and Redeployment Operations.

n. JP 3-41, Chemical, Biological, Radiological, Nuclear, and High Yield Explosives

Consequence Management.

o. JP 3-61, Public Affairs.

p. JP 4-0, Joint Logistics Support.

q. JP 4-02, Health Service Support.

r. JP 4-05.1, Manpower Mobilization and Demobilization Operations: Reserve Component

(RC) Call-up.

s. JP 4-06, Mortuary Affairs in Joint Operations.

t. JP 5-0, Joint Operation Planning.

u. JP 6-0, Joint Communications System.

4. Chairman of the Joint Chiefs of Staff Directives

a. CJCS CONPLAN 0500-98, Military Assistance to Domestic Consequence Management

Operations in response to a Chemical, Biological, Radiological, Nuclear, or High-Yield Explosives

Situation.

b. Domestic Operational Law (DOPLAW) Handbook for Judge Advocates.

c. CJSCI 3110.07B, Nuclear, Biological, and Chemical defense; Riot Control Agents and

Herbicides.

d. CJCSI 3110.16, Military Capabilities, Assets, and Units for Chemical, Biological,

Radiological, Nuclear, and High Yield Explosive Consequence Management Operations (FOUO).
G-5

References

e. CJCSI 3121.01B, Standing Rules of Engagement/Standing Rules for the Use of Force for

US Forces (SECRET).

f. CJCSI 3125.01, Military Assistance to Domestic Consequence Management Operations

in Response to a Chemical, Biological, Radiological, Nuclear, or High-Yield Explosive Situation.

g. CJCSI 3217.01A, Military Assistance to the US Postal Service.

h. CJCSI 3710.01A, DOD Counterdrug Support.

i. CJCSI 4120.02, Assignment of Movement Priority.

j. CJCSI 5120.02, Joint Doctrine Development System.

5. Air Force

a. Air Force Doctrine Document 2-10, Homeland Operations.

b. Air Force Instruction (AFI) 10-802, Military Assistance to Civil Authorities.

c. AFI 10-2501, Emergency Management Program Planning and Operations.
G-6

Appendix G

JP 3-28

Intentionally Blank
APPENDIX H

ADMINISTRATIVE INSTRUCTIONS

H-1

1. User Comments

Users in the field are highly encouraged to submit comments on this publication to:

Commander, United States Joint Forces Command, Joint Warfighting Center, ATTN: Doctrine

Group, 116 Lake View Parkway, Suffolk, VA 23435-2697. These comments should address

content (accuracy, usefulness, consistency, and organization), writing, and appearance.

2. Authorship

The lead agent for this publication is USNORTHCOM. The Joint Staff doctrine sponsor

for this publication is the Director for Operations (J-3).

3. Supersession

This publication, in conjunction with the publication of JP 3-27, 12 July 2007, Homeland Defense,

supersedes JP 3-26, 02 August 2005, Homeland Security.

4. Change Recommendations

a. Recommendations for urgent changes to this publication should be submitted:

TO: CDR USNORTHCOM//DC//

INFO: JOINT STAFF WASHINGTON DC//J7-JEDD//

CDRUSJFCOM SUFFOLK VA//JT10//

Routine changes should be submitted electronically to Commander, Joint Warfighting Center,

Joint Doctrine Group and info the Lead Agent and the Director for Operational Plans and Joint

Force Development J-7/JEDD via the CJCS JEL at http://www.dtic.mil/doctrine.

b. When a Joint Staff directorate submits a proposal to the Chairman of the Joint Chiefs of

Staff that would change source document information reflected in this publication, that directorate

will include a proposed change to this publication as an enclosure to its proposal. The Military

Services and other organizations are requested to notify the Joint Staff J-7 when changes to

source documents reflected in this publication are initiated.
H-2

Appendix H

JP 3-28

c. Record of Changes:

CHANGE COPY DATE OF DATE POSTED

NUMBER NUMBER CHANGE ENTERED BY REMARKS

__________________________________________________________________________________________________

__________________________________________________________________________________________________

__________________________________________________________________________________________________

5. Distribution of Publications

Local reproduction is authorized and access to unclassified publications is unrestricted.

However, access to and reproduction authorization for classified joint publications must be in

accordance with DOD Regulation 5200.1-R, Information Security Program.

6. Distribution of Electronic Publications

a. Joint Staff J-7 will not print copies of JPs for distribution. Electronic versions are available

on JDEIS at https://jdeis.js.mil (NIPRNET), and https://jdeis.js.smil.mil (SIPRNET) and on the

JEL at http://www.dtic.mil/doctrine (NIPRNET).

b. Only approved joint publications and joint test publications are releasable outside the

combatant commands, Services, and Joint Staff. Release of any classified joint publication to

foreign governments or foreign nationals must be requested through the local embassy (Defense

Attaché Office) to DIA Foreign Liaison Office, PO-FL, Room 1E811, 7400 Pentagon, Washington,

DC 20301-7400.

c. CD-ROM. Upon request of a JDDC member, the Joint Staff J-7 will produce and deliver

one CD-ROM with current joint publications.
GLOSSARY

PART I — ABBREVIATIONS AND ACRONYMS

GL-1

AC Active Component

ADA aerial damage assessment

AFI Air Force instruction

AFME Armed Forces Medical Examiner

AFNORTH Air Force North

ANG Air National Guard

ANGUS Air National Guard of the United States

AOR area of responsibility

APHIS Animal and Plant Health Inspection Service

ARC American Red Cross

ARNG Army National Guard

ARNGUS Army National Guard of the United States

ARNORTH US Army North

ASD(HA) Assistant Secretary of Defense (Health Affairs)

ASD(HD&ASA) Assistant Secretary of Defense (Homeland Defense and

Americas’ Security Affairs)

ASD(RA) Assistant Secretary of Defense (Reserve Affairs)

BSI base support installation

C2 command and control

CAP Civil Air Patrol

CBRNE chemical, biological, radiological, nuclear, and high-yield

explosives

CCDR combatant commander

CD counterdrug

CDRUSJFCOM Commander, United States Joint Forces Command

CDRUSNORTHCOM Commander, United States Northern Command

CDRUSPACOM Commander, United States Pacific Command

CDRUSSOCOM Commander, United States Special Operations Command

CDRUSSOUTHCOM Commander, United States Southern Command

CDRUSSTRATCOM Commander, United States Strategic Command

CDRUSTRANSCOM Commander, United States Transportation Command

CERFP CBRNE enhanced response force package

CFO chief financial officer

CI counterintelligence

CI/KR critical infrastructure/key resources

CJCS Chairman of the Joint Chiefs of Staff

CJCSI Chairman of the Joint Chiefs of Staff instruction

CJCSM Chairman of the Joint Chiefs of Staff manual

CJTF commander, joint task force

CM consequence management
GL-2

Glossary

JP 3-28

CNE Counter Narcotics Enforcement

CONPLAN concept plan

CONUS continental United States

CPG Contingency Planning Guidance

CrM crisis management

CS civil support

CSS combat service support

DCE defense coordinating element

DCO defense coordinating officer (DOD)

DEST domestic emergency support team

DFAS Defense Finance and Accounting Service

DHHS Department of Health and Human Services

DHS Department of Homeland Security

DMIGS Domestic Mobile Integrated Geospatial-Intelligence System

DOD Department of Defense

DODD Department of Defense directive

DODI Department of Defense instruction

DOJ Department of Justice

DOS Department of State

DTRA Defense Threat Reduction Agency

EMAC emergency management assistance compact

EMS emergency medical services

EO executive order

EOC emergency operations center

EP emergency preparedness

EPA Environmental Protection Agency

EPLO emergency preparedness liaison officer

ESF emergency support function

EXORD execute order

FBI Federal Bureau of Investigation

FBO faith-based organization

FCC Federal coordinating center

FCO federal coordinating officer

FEMA Federal Emergency Management Agency

FI foreign intelligence

FM financial management

FOB forward operating base

FP force protection

FRC federal resource coordinator

GCC geographic combatant commander

GEOINT geospatial intelligence
GL-3

Glossary

GIG Global Information Grid

GSA General Services Administration

HD homeland defense

HS homeland security

HSC Homeland Security Council

HSPD homeland security Presidential directive

HSS health service support

IACG interagency coordination group

IAW in accordance with

ICP incident command post

ICS incident command system

IPC interagency planning cell

ISR intelligence, surveillance, and reconnaissance

J-1 manpower and personnel directorate of a joint staff

JDDOC joint deployment distribution operations center

JDOMS Joint Director of Military Support

JFC joint force commander

JFHQ joint force headquarters

JFHQ – NCR Joint Force Headquarters - National Capital Region

JFHQ – State joint force headquarters state

JFO joint field office

JIACG joint interagency coordination group

JIC joint information center

JIS joint information system

JOA joint operations area

JOPES Joint Operation Planning and Execution System

JP joint publication

JPERSTAT joint personnel status and casualty report

JRSOI joint reception, staging, onward movement, and integration

JTF joint task force

JTF-AK Joint Task Force - Alaska

JTF-CS Joint Task Force - Civil Support

JTF-HD Joint Task Force - Homeland Defense

JTF-N Joint Task Force - North

JTF-State joint task force state

LEA law enforcement agency

LNO liaison officer

MCIO military criminal investigative organization

MOTR maritime operational threat response
GL-4

Glossary

JP 3-28

MOU memorandum of understanding

MTF medical treatment facility

NCR National Capital Region (US)

NCRCG National Cyber Response Coordination Group

NDMS National Disaster Medical System

NETOPS network operations

NG National Guard

NGA National Geospatial-Intelligence Agency

NGB National Guard Bureau

NGB-OC National Guard Bureau — Office of the Chaplain

NGO nongovernmental organization

NGRF National Guard reaction force

NIMS National Incident Management System

NIPRNET Non-Secure Internet Protocol Router Network

NLW nonlethal weapon

NOC National Operations Center

NRCC national response coordination center

NRP National Response Plan

NSHS National Strategy for Homeland Security

NSS National Security Strategy

NSSE national special security event

OGA other government agency

OPCON operational control

OPORD operation order

OSD Office of the Secretary of Defense

PA public affairs

PCA Posse Comitatus Act

PDA preliminary damage assessment

PFO principal federal official

PIO public information officer

POD port of debarkation

RC Reserve Component

RFA request for assistance

RMP religious ministry professional

ROE rules of engagement

RRCC regional response coordination center

RS religious support

RSP religious support policy

RST religious support team

RUF rules for the use of force
GL-5

Glossary

SCO state coordinating officer

SecDef Secretary of Defense

SEPLO state emergency preparedness liaison officer

SEWG Special Events Working Group

SFLEO senior federal law enforcement official

SIPRNET Secret Internet Protocol Route Network

SJFHQ-N Standing Joint Force Headquarters North

SME subject matter expert

SPG Strategic Planning Guidance

SROE standing rules of engagement

SRUF standing rules for the use of force

TAG the adjutant general

TF task force

UAS unmanned aircraft system

UCMJ Uniform Code of Military Justice

UCP Unified Command Plan

USACE United States Army Corps of Engineers

USAFR United States Air Force Reserve

USAR United States Army Reserve

USC United States Code

USCG United States Coast Guard

USDA United States Department of Agriculture

USG United States Government

USMCR United States Marine Corps Reserve

USNORTHCOM United States Northern Command

USNR United States Navy Reserve

USPACOM United States Pacific Command

USSOUTHCOM United States Southern Command

USTRANSCOM United States Transportation Command

WMD weapons of mass destruction

WMD-CST weapons of mass destruction – civil support team
Unless otherwise annotated, this publication is the proponent for all terms and definitions found in the

glossary. Upon approval, JP 1-02 will reflect this publication as the source document for these terms

and definitions.

base support installation. A Department of Defense Service or agency installation within the United

States and its possessions and territories tasked to serve as a base for military forces engaged in

either homeland defense or civil support operations. Also called BSI. (This term and its definition

modify the existing term and its definition and are approved for inclusion in the next edition of JP 1-

02.)

catastrophic event. Any natural or man-made incident, including terrorism, which results in extraordinary

levels of mass casualties, damage, or disruption severely affecting the population, infrastructure,

environment, economy, national morale, and/or government functions. (Approved for inclusion in

the next edition of JP 1-02.)

chemical, biological, radiological, nuclear, or high-yield explosives incident. An emergency

resulting from the deliberate or unintentional release of nuclear, biological, radiological, or toxic or

poisonous chemical materials, or the detonation of a high-yield explosive. Also called CBRNE

incident. (This term and its definition modify the existing term “chemical, biological, radiological,

nuclear, or high-yield explosives incidents” and its definition and are approved for inclusion in the

next edition of JP 1-02.)

civil authorities. Those elected and appointed officers and employees who constitute the government

of the United States, the governments ofthe 50 states, the District of Columbia, the Commonwealth

of Puerto Rico, United States possessions and territories, and political subdivisions thereof. (This

term and its definition modify the existing term and its definition and are approved for inclusion in

the next edition of JP 1-02.)

civil disturbance. Group acts of violence and disorder prejudicial to public law and order. (JP 3-28)

civil emergency. Any occasion or instance for which, in the determination of the President,

federal assistance is needed to supplement state and local efforts and capabilities to save

lives and to protect property and public health and safety, or to lessen or avert the threat of

a catastrophe in any part of the United States. (Approved for inclusion in the next edition of JP 1-

02.)

civil support. Department of Defense support to US civil authorities for domestic emergencies, and for

designated law enforcement and other activities. Also called CS. (JP 3-26)

consequence management. Actions taken to maintain or restore essential services and manage and

mitigate problems resulting from disasters and catastrophes, including natural, man-made, or terrorist

incidents. Also called CM. (This term and its definition modify the existing term and its definition

and are approved for inclusion in the next edition of JP 1-02.)

PART II — TERMS AND DEFINITIONS

GL-6 JP 3-28
cooperating agency. An agency that provides technical and resource support (including planning,

training, and exercising), at the request of the coordinating agency, to conduct operations using their

own authorities, subject-matter experts, capabilities or resources (i.e., personnel, equipment, or

other resource support). The Department of Defense is considered a cooperating agency for the

majority of the National Response Plan support annexes. (Approved for inclusion in the next

edition of JP 1-02.)

coordinating agency. An agency that supports the incident management mission by providing

the leadership, expertise, and authorities to implement critical and specific aspects of the

response. Responsible for orchestrating a coordinated response, provides staff for operations

functions, notifies and tasks cooperating agencies, manages tasks with cooperating agencies,

works with private-sector organizations, communicates ongoing activities to organizational

elements, plans for short- and long-term incident management and maintains trained

personnel to execute their appropriate support responsibilities. (Approved for inclusion in

the next edition of JP 1-02.)

crisis management. Measures to identify, acquire, and plan the use of resources needed to

anticipate, prevent, and/or resolve a threat or an act of terrorism. It is predominantly a law

enforcement response, normally executed under federal law. Also called CrM. (JP 3-28)

defense coordinating element. A staff and military liaison officers who assist the defense

coordinating officer in facilitating coordination and support to activated emergency support

functions. Also called DCE. (Approved for inclusion in the next edition of JP 1-02.)

defense coordinating officer. Department of Defense single point of contact for domestic

emergencies. Assigned to a joint field office to process requirements for military support,

forward mission assignments through proper channels to the appropriate military

organizations, and assign military liaisons, as appropriate, to activated emergency support functions.

Also called DCO. (This term and its definition modify the existing term and its definition and are

approved for inclusion in the next edition of JP 1-02.)

defense support of civil authorities. Civil support provided under the auspices of the National

Response Plan. Also called DSCA. (Approved for inclusion in the next edition of JP 1-02.)

domestic emergencies. Emergencies affecting the public welfare and occurring within the 50

states, District of Columbia, Commonwealth of Puerto Rico, US possessions and territories,

or any political subdivision thereof, as a result of enemy attack, insurrection, civil disturbance,

earthquake, fire, flood, or other public disasters or equivalent emergencies that endanger life

and property or disrupt the usual process of government. Domestic emergencies include civil

defense emergencies, civil disturbances, major disasters, and natural disasters.( JP 3-27)

emergency operations center. The physical location at which the coordination of information and

resources to support domestic incident management activities normally takes place. An emergency

operations center may be a temporary facility or may be located in a more central or permanently

established facility, perhaps at a higher level of organization within a jurisdiction. Emergency

GL-7

Glossary
GL-8

Glossary

JP 3-28

operations centers may be organized by major functional disciplines (e.g., fire, law enforcement,

and medical services), by jurisdiction (e.g., Federal, state, regional, county, city, tribal), or by some

combination thereof. Also called EOC. (JP 3-41)

emergency preparedness liaison officer. A senior reserve officer who represents their Service at

the appropriate joint field office conducting planning and coordination responsibilities in support of

civil authorities. Also called EPLO. (This term and its definition modify the existing term and its

definition and are approved for inclusion in the next edition of JP 1-02.)

emergency support functions. A grouping of government and certain private-sector capabilities

into an organizational structure to provide the support, resources, program implementation,

and services that are most likely to be needed to save lives, protect property and the

environment, restore essential services and critical infrastructure, and help victims and

communities return to normal, when feasible, following domestic incidents. Also called

ESFs. (This term and its definition modify the existing term and its definition and are

approved for inclusion in the next edition of JP 1-02.)

execute order. 1. An order issued by the Chairman of the Joint Chiefs of Staff, at the direction of the

Secretary of Defense, to implement a decision by the President to initiate military operations. 2. An

order to initiate military operations as directed. Also called EXORD. (JP 1-02)

force protection. Preventive measures taken to mitigate hostile actions against Department of

Defense personnel (to include family members), resources, facilities, and critical information.

Force protection does not include actions to defeat the enemy or protect against accidents,

weather, or disease. Also called FP. (JP 1-02)

homeland. The physical region that includes the continental United States, Alaska, Hawaii, United

States possessions and territories, and surrounding territorial waters and airspace. (This term and

its definition modify the existing term and its definition and are approved for inclusion in the next

edition of JP 1-02.)

homeland defense. The protection of United States sovereignty, territory, domestic population, and

critical defense infrastructure against external threats and aggression or other threats as directed by

the President. Also called HD. (JP 3-27.)

homeland security. A concerted national effort to prevent terrorist attacks within the United States;

reduce America’s vulnerability to terrorism, major disasters, and other emergencies; and minimize

the damage and recover from attacks, major disasters, and other emergencies that occur. Also

called HS. (This term and its definition modify the existing term and its definition and are approved

for inclusion in the next edition of JP 1-02.)

hostile act. An attack or other use of force against the US, US forces, or other designated persons or

property. It also includes force used directly to preclude or impede the mission and/or duties of US

forces, including the recovery of US personnel or vital US Government property. (This term and
GL-9

Glossary

its definition modify the existing term and its definition and are approved for inclusion in the next

edition of JP 1-02.)

immediate response. Any form of immediate action taken to save lives, prevent human suffering,

or mitigate great property damage under imminently serious conditions when time does not

permit approval from a higher authority. (This term and its definition modify the existing

term and its definition and are approved for inclusion in the next edition of JP 1-02.)

incident. 1. In information operations, an assessed event of attempted entry, unauthorized entry,

or an information attack on an automated information system. It includes unauthorized

probing and browsing; disruption or denial of service; altered or destroyed input, processing,

storage, or output of information; or changes to information system hardware, firmware, or

software characteristics with or without the users’ knowledge, instruction, or intent. 2. An

occurrence, caused by either human action or natural phenomena, that requires action to

prevent or minimize loss of life or damage to property and/or natural resources. (This term

and its definition modify the existing term and its definition and are approved for inclusion

in the next edition of JP 1-02.)

incident command post. The field location at which the primary tactical-level on-scene incident

command functions are performed. It may be collocated with the incident base or other

incident facilities and is normally identified by a green rotating or flashing light. Also

called ICP. (This term and its definition modify the existing term “incident control point”

and its definition and are approved for inclusion in the next edition of JP 1-02.)

incident command system. A standardized on-scene emergency management construct designed to

aid in the management of resources during incidents. Consists of facilities, equipment, personnel,

procedures, and communications established for this purpose. Also called ICS. (This term and its

definition modify the existing term and its definition and are approved for inclusion in the next

edition of JP 1-02.)

incident management. A national comprehensive approach to preventing, preparing for, responding

to, and recovering from terrorist attacks, major disasters, and other emergencies. Incident

management includes measures and activities performed at the local, state, and national levels and

includes both crisis and consequence management activities. (This term and its definition modify

the existing term and its definition and are approved for inclusion in the next edition of JP 1-02.)

joint field office. A temporary multiagency coordination center established at the incident site to

provide a central location for coordination of federal, state, local, tribal, nongovernmental, and

private-sector organizations with primary responsibility for incident oversight, direction, and/or

assistance to effectively coordinate protection, prevention, preparedness, response, and recovery

actions. Also called JFO. (This term and its definition modify the existing term and its definition and

are approved for inclusion in the next edition of JP 1-02.)
GL-10

Glossary

JP 3-28

joint information system. Integrates incident information and public affairs into a cohesive organization

designed to provide consistent, coordinated, timely information during a crisis or incident. Also

called JIS. (Approved for inclusion in the next edition of JP 1-02.)

joint interagency coordination group. An Interagency staff group that establishes regular, timely,

and collaborative working relationships between civilian and military operational planners.

Composed of US Government civilian and military experts accredited to the combatant commander and tailored to meet the requirements of a supported joint forcecommander, the joint

interagency coordination group provides the joint force commander with the capability to

coordinate with other US Government civilian agencies and departments. Also called JIACG.

(JP 3-03)

law enforcement agency. Any of a number of agencies (outside the Department of Defense) chartered

and empowered to enforce US laws in the following jurisdictions: The United States, a state (or

political subdivision) of the United States, a territory (or political subdivision) of the United States,

a federally recognized Native American tribe or Alaskan Native Village, or within the borders of a

host nation. Also called LEA. (This term and its definition modify the existing term and its definition

and are approved for inclusion in the next edition of JP 1-02.)

mission assignment. The vehicle used by the Department of Homeland Security/Emergency

Preparedness and Response/Federal Emergency Management Agency to support federal

operations in a Stafford Act major disaster or emergency declaration that orders immediate,

short-term emergency response assistance when an applicable state or local government is

overwhelmed by the event and lacks the capability to perform, or contract for, the necessary

work. (Approved for inclusion in the next edition of JP 1-02.)

national capital region. A geographic area encompassing the District of Columbia and eleven

local jurisdictions in the State of Maryland and the Commonwealth of Virginia. Also called

NCR. (Approved for inclusion in the next edition of JP 1-02.)

national emergency. A condition declared by the President or the Congress by virtue of powers

previously vested in them that authorize certain emergency actions to be undertaken in the

national interest. Action to be taken may include partial, full, or total mobilization of national

resources. (JP 3-28)

national interagency fire center. A facility located in Boise, Idaho, that is jointly operated by several

federal agencies and is dedicated to coordination, logistic support, and improved weather services

in support of fire management operations throughout the United States. Also called NIFC.

(Approved for inclusion in the next edition of JP 1-02.)

national operations center. The primary national hub for domestic incident management operational

coordination and situational awareness. A standing 24 hours a day, 7 days a week interagency

organization fusing law enforcement, national intelligence, emergency response, and private-sector

reporting. Also called NOC. (Approved for inclusion in the next edition of JP 1-02.)
GL-11

Glossary

national response coordination center. A multiagency center that provides overall federal response

and recovery coordination for incidents of national significance and emergency management program

implementation. This center is a functional component of the national operations center. Also

called NRCC. (Approved for inclusion in the next edition of JP 1-02.)

national special security event. A designated event that, by virtue of its political, economic, social, or

religious significance, may be the target of terrorism or other criminal activity. Also called NSSE.

(This term and its definition modify the existing term and its definition and are approved for inclusion

in the next edition of JP 1-02.)

nonlethal weapon. A weapon that is explicitly designed and primarily employed so as to incapacitate

personnel or materiel, while minimizing fatalities, permanent injury to personnel, and undesired

damage to property and the environment. Also called NLW. (This term and its definition modify

the existing term and its definition and are approved for inclusion in the next edition of JP 1-02.)

primary agency. The federal department or agency assigned primary responsibility for managing and

coordinating a specific emergency support function in the National Response Plan. (This term and

its definition modify the existing term and its definition and are approved for inclusion in the next

edition of JP 1-02.)

principal federal official. The federal official designated by the Secretary of Homeland Security

to act as his/her representative locally to oversee, coordinate, and execute the Secretary’s

incident management responsibilities under Homeland Security Presidential Directive 5

for incidents of national significance. Also called PFO. (JP 3-41)

regional response coordination center. A standing facility that is activated to coordinate regional

response efforts, until a joint field office is established and/or the principal federal official,

federal or coordinating officer can assume their National Response Plan coordination

responsibilities. Also called RRCC. (Approved for inclusion in the next edition of JP

1-02.)

religious support. The entire spectrum of professional duties that a chaplain provides and performs in the dual role of religious leader and staff officer assisted by enlisted support personnel. (JP 1-05)

request for assistance. A request based on mission requirements and expressed in terms of desired

outcome, formally asking the Department of Defense to provide assistance to a local, state, tribal,

or other federal agency. Also called RFA. (Approved for inclusion in the next edition of JP 1-02.)

rules for the use of force. Directives issued to guide United States forces on the use of force during

various operations. These directives may take the form of execute orders, deployment orders,

memoranda of agreement, or plans. Also called RUF. (JP 3-28)

special events for homeland security. Those special events designated as having an impact on

homeland security . Also called SEHS. (Approved for inclusion in the next edition of JP 1-02.)
GL-12

Glossary

JP 3-28

standing rules for the use of force. Preapproved directives issued to guide United States forces on

the use of force during various operations. These directives may take the form of execute orders,

deployment orders, memoranda of agreement, or plans. Also called SRUF. (Approved for

inclusion in the next edition of JP 1-02.)

support agency. A federal department or agency designated to assist a specific primary agency

with available resources, capabilities, or expertise in support of emergency support response

operations, as coordinated by the representative of the primary agency. (This term and its

definition modify the existing term and its definition and are approved for inclusion in the next

edition of JP 1-02.)

supporting commander. 1. A commander who provides augmentation forces or other support to

a supported commander or who develops a supporting plan. This includes the designated

combatant commands and Department of Defense agencies as appropriate. 2. In the context

of a support command relationship, the commander who aids, protects, complements, or

sustains another commander’s force, and who is responsible for providing the assistance

required by the supported commander. (JP 1-02)

weapons of mass destruction. Weapons that are capable of a high order of destruction and/or of

being used in such a manner as to destroy large numbers of people. Weapons of mass destruction

can be high-yield explosives or nuclear, biological, chemical, or radiological weapons, but exclude

the means of transporting or propelling the weapon where such means is a separable and divisible

part of the weapon. Also called WMD. (This term and its definition modify the existing term and

its definition and are approved for inclusion in the next edition of JP 1-02.)

weapons of mass destruction – civil support team. Joint National Guard (Army National Guard

and Air National Guard) team established to deploy rapidly to assist a local incident commander in

determining the nature and extent of a weapons of mass destruction attack or incident; provide

expert technical advice on weapons of mass destruction response operations; and help identify and

support the arrival of follow-on state and federal military response assets. Also called WMDCST. (Approved for inclusion in the next edition of JP 1-02.)
JOINT DOCTRINE PUBLICATIONS HIERARCHY JOINT DOCTRINE PUBLICATIONS HIERARCHY

JP 1-0 JP 2-0 JP 3-0

PERSONNEL

JP 4-0 JP 5-0 JP 6-0

INTELLIGENCE OPERATIONS LOGISTICS

COMMUNICATIONS

PLANS SYSTEM

JP 1

JOINT

DOCTRINE

Maintenance

Approval Development

Initiation

JOINT

DOCTRINE

PUBLICATION

ENHANCED

JOINT

WARFIGHTING

CAPABILITY

STEP #4 - Maintenance









JP published and continuously

assessed by users

Formal assessment begins 24-

27 months following

publication

Revision begins 3.5 years after

publication

Each JP revision is completed

no later than 5 years after

signature

STEP #3 - Approval STEP #2 - Development

STEP #1 - Initiation







JSDS delivers adjudicated matrix to JS J-7

JS J-7 prepares publication for signature

JSDS prepares JS staffing package

JSDS staffs the publication via JSAP for

signature













LA selects Primary Review Authority (PRA) to develop the

first draft (FD)

PRA/USJFCOM develops FD for staffing with JDDC

FD comment matrix adjudication

JS J-7 produces the final coordination (FC) draft, staffs to

JDDC and JS via Joint Staff Action Processing

Joint Staff doctrine sponsor (JSDS) adjudicates FC

comment matrix

FC Joint working group













Joint Doctrine Development

Community (JDDC) submission to

fill extant operational void

US Joint Forces Command

(USJFCOM) conducts front-end

anlalysis

Joint Doctrine Planning Conference

validation

Program Directive (PD) development

and staffing/joint working group

PD includes scope, references,

outline, milestones, and draft

authorship

Joint Staff (JS) J-7 approves and

releases PD to lead agent (LA)

(Service, combatant command, JS

directorate)

All joint publications are organized into a comprehensive hierarchy as shown in the chart above.

is in the series of joint doctrine publications. The diagram below illustrates an overview of

the development process:

Joint Publication

(JP) 3-28 Operations